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National Archives Catalogue: https://catalog.archives.gov/ STATEMENT BY

AMBASSADOR ROBERT B. OAKLEY

ACTING AMBASSADOR-AT-LARGE FOR COUNTER TERRORISM

TO THE

SUBCOMMITTEE ON CIVIL AND CONSTITUTIONAL RIGHTS

COMMITTEE ON THE JUDICIARY

UNITED STATES HOUSE OF REPRESENTATIVES

February 28, 1986 HOUSE JUDICIARY SUBCOMMITTEE ON CIVIL

AND CONSTITUTIONAL RIGHTS

February 28, 1986

TESTIMONY BY ROBERT B. OAKLEY

ACTING AMBASSADOR-AT-LARGE FOR COUNTER-TERRORISM

Mr. Chairman, Committee Members,

Thank you for the opportunity to appear today with my colleagues from the Treasury Department and the FBI to discuss the threat of terrorism.

Our presence here together illustrates the partnership within the U.S. government, the Congress and the American people in this combined effort to counter the modern day scourge of terrorism. Obviously there has to be a certain amount of "specialization" in this effort and as you are aware, the FBI is the primary agency on dealing with the terrorist threats at hoDe and the State Department is the lead agency in coordinating the U.S. government's anti-terrorism effort overseas. Treasury has an important role in both. We work together, especially where the threat abroad has a potential for trouble here at home.

Mr. Webster is covering the domestic situation and I will sketch out the growing problem of overseas international terrorism which in 1985 all too frequently caught the television screens and thus the eyes and ears of . .

. .

Americans.This was partly because terrorists singled out

Americans for death in three of the most dramatic

attacks--the prolonged TWA 847 hijacking in June, the

Achille Lauro hijacking in October and the .November

hijacking of the Egyptian airliner in Malta. Five Americans

were among the 18 killed in the December massacres at Rome

and Vienna airports by the Abu Nida! group, supported by

Libya. We also experienced the continuing anguish of the

American hostages in Lebanon and their courageous families

in this country.

A preliminary review of statistics shows that in 1985,

there were more than 800 incidents of international

terrorism. There were 2223 casualties of which 23 of the

killed and 139 of the injured were Americans. Over the past

two years, international terrorism has risen sharply (60%)

from the yearly average of about 500 for the 1978-83 period.

The Terrorist Threat Abroad. There are a number of

diverse reasons and causes behind this disturbing trend.

Middle East-related terrorism is a major cause for the

increase, with the number of incidents rising from 109 in

1983 to 378 in 1985. Within that category, there are a

variety of factors and actors. The Israeli-Palestinian

dispute is only one component, and it includes terrorism

conducted by radical Palestinian groups trying to disrupt

the peace process. - ,, -

There is also the terrorism inspired by Khomeini's brand of politico-religious fanaticism, the Iran-Iraq wars, and

Qadhafi's assassination campaign against Libyan dissidents.

Some terrorist acts were attempts by terrorists to

·· ' • obtain the release of their colleagues or relatives arrested for previous actions. The one consistent demand of the captors of the American hostages in Lebanon is the release of the 17 Iranian-inspired terrorists convicted in

for the bloody terrorist attacks there in December, 1984 which killed and wounded almost 100 people. Other

terrorists, such as Abu Abbas, whose group hijacked the

Achille Lauro, were trying to make an anti-U.S., anti- political point and as well as obtaining release of captured colleagues.

The most deadly of the Middle East terrorist attacks

came from the group which shifted the locus of its

operations from Iraq to in 1983. In early 1985, Abu

Nidal focused his attacks against Jordanian and main-stream

Palestinian officials. Then, about the middle of the year,

after Syria and began high-level discussions,

became his main backer and his targets shifted. The

hijacking of the Egyptian airliner to Malta, in which women

passengers--American and Israeli--were singled out for killing for the first time, and the Rome and Vienna airport attacks were the major operations of the Abu Nidal organization after it began to receive strong Libyan support.

Western European groups also were active. The Red Army Faction attacked American and NATO-related installations in Germany, causing several American deaths, and their counterparts in and Belgium also carried out attacks in these countries. In Italy, just this month, the Red Brigades revived after the Italians had dealt major setbacks to the group. In Spain, Basque separatists continued their campaign. An American businessman was killed last year when a car bomb blew up in Madrid, wounding over a dozen Spanish Civil Guards. In Latin America, terrorist incidents grew from 81 in 1984 to 132 in 1985. Eighty-six of these incidents involved the , including the killing of four Marines and two businessmen in San Salvador. The list is by no means complete but I cite these incidents to illustrate the variety of types of terrorists. There is a common point, however. None of them, whatever they or their backers may claim, are some kind of romantic freedom fighters whose attacks should be excused away on the ground that they are fighting for a political "just cause." What they are conducting are criminal acts, in many cases deliberately trying to kill and wound as many innocent persons as possible, including those without any direct connection to their grievance.

International Terrorist Threat to the U.S.? We're often

•I asked "will overseas terrorism move here? It is difficult to give a categorical answer because there are so many varieties of overseas terrorists, but all concerned agencies of the U.S. government take the threat very seriously, particularly State, Justice and Treasury.

Most recently, Libya's Qadhafi gained additional headlines by more threats to bring terrorism to the U.S.

While we consider this to be an exaggeration, it is not to be ignored. There has been a clear pattern of assassination by Libyan agents abroad of their own countrymen whom Qadhaf i did not like. The new Abu Nidal connection gives Libya a greater capability. Last year the FBI successfully foiled a plot by a group of Libyans in this country and a member of

Libya's mission to the was expelled because of his involvement in terrorist activities.

Sikh terrorists, who were inactive until just two years ago, suddenly emerged in the U.S. and Canada as well as in

India. As Mr. Webster testified, the FBI thwarted potential - ~ -

Sikh operations here. The planting of bombs last year on two civilian airliner flights from Canada however hit close to home. The Air India tragedy was the single most qevastating event in 1985. The crash last June, which. all evidence attributes to a bomb planted by Sikh terrorists, took 329 lives. The U.S., Canada, the U.K. and India are making a special effort to identify and preempt possible Sikh terrorism. There are other groups which have in the past used American soil to air their grievances by action against representatives of other countries, such as Armenian terrorists who had been attacking Turkish diplomats, and the Jewish Defense League which has attacked Soviet diplomats. However, I wish to draw your attention to the fact that there were no incidents actually carried out in this country last year involving connections with groups or governments abroad. I also wish to make a point about the differences between actual and potential threat from groups of citizens or permanent residents in this country with strong family, ethnic or religious ties abroad. While there have been a small number of incidents involving individuals from these groups, a combination of good law enforcement and pressure to cease and desist from the groups themselves has tended - ~ -

to prevent the continuation or repetition of terrorist activity. These groups are composed overwhelmingly of peace loving, patriotic citizens. It would be a mistake and grossly unfair for the American public, Congress o'r the media to label or imply ethnic communities in this country are potential hotbeds of terrorism.

There are a number of reasons why terrorists from abroad are not more active here. One, of course, is the excellent work of the FBI, the Alcohol, Tobacco and Fire Arms Bureau of Treasury, and other law enforcement agencies. A second is the good work by the CIA and other agencies in developing intelligence abroad on possible threats to this country.

Another factor is that the intellectual, political and psychological atmosphere which seems to nurture some of the European ideological terrorists is not popular here. Yet another is the good work by INS,

Customs and the State Department in keeping out potential terrorists.

One result of this good work is that it is easier for terrorists who want to strike at Americans to do so overseas. There are millions of us working and traveling abroad at any given time. The buildings and cafes we work and eat in, the airports we use. It is difficult to gauge whether the situation at home would change if stronger anti-terrorism actions were taken by the U.S. government overseas. We have taken a number of economic and political measures against Qadhafi, for example and the U.S. and

Israel, have long been his targets. The U.S. · is ~lso target number one for a number of other groups in the Middle East and Latin America. While one cannot rule out that stronger actions against Qadhafi or other terrorists might increase further their desire to do something against the U.S. at home, there are the basic obstacles mentioned above which even the most irrational terrorist needs to consider. A desire for revenge does not necessarily change the equation of the relative difficulties of terrorists getting to and operating in the U.S. or our abilities to prevent them.

In any ev~nt, this Administration has decided upon a still more vigorous campaign of counterterrorism, and will not be deterred by the risk of retaliation in this country. This is the main conclusion of the report of the Vice President's task force on Combatting Terrorism, which President Reagan has approved and which will soon be made public. It recommends measures to strengthen our anti-terrorist capabilities aboard and at home, and a continuation of the policy of no concessions, no backing down where terrorism is concerned. -~-'

Of course nothing is certain in this business and the terrorists have the advantage of surprise and shifting tactics. Thus, in considering our responses to a given situation, we try to take all factors into account.: But we cannot let ourselves be immobilized into inaction for fear our actions might prompt more terrorist attacks. To the contrary, the cost of doing nothing is usually higher than the costs of doing something. Many European governments have long demurred at joining in action against Libya or terrorist groups, rejecting even seemingly simple controls upon those entering or living in their countries, because they were concerned about losing Arab world business. Belatedly, they have now come to realize that they are not being spared, and that terrorism is costing them dearly in falling tourism revenues, increased security costs, and apprehensive potential investors, as well as some loss of confidence by their own public.

International Cooperation. Dealing with terrorism overseas is complicated by such economic factors and by differing political and foreign policy viewpoints, even in the case of attacks where the primary targets are American. It should be kept in mind--and it is often overlooked by the media and public--that the primary legal and political responsibility for countering terrorism is the government of the country in which the terrorists may attack. -ld>-

Our power is limited and constrained both legally and politically. For instance, we can post military guards inside the grounds of our embassies, or other installations to help protect them, but we are dependent· upon the host government for the outer defense, just as it is the host government's responsibility to protect travelers at the airports, business, and other facilities within its jurisdiction. We can mobilize our military forces to strike terrorists, but our ability to use them in friendly or neutral foreign territory is dependent upon the concurrence of the host government. Application of our legal power to pursue terrorists abroad is also heavily influenced by host government attitudes. In this connection, tightly worded extradition treaties without political loopholes subject to exploitation by terrorists are very important. The u.s.-u.K. extradition treaty pending before the Senate for ratification is an example. We can, and do, work with many of the other countries to help improve their defense against terrorism. But, in the end the decisions--or sometimes the lack of decisions--on how to deal with the situation are up to the other sovereign governments. And it is obviously in our interest to see them take as strong and effective action as possible, dealing with the threat abroad rather than have it spread to

In countering terrorism, our efforts to obtain the U.S. -lZ- international cooperation and provide international assistance are all important.

ATA PROGRAM. An important part of our cooperation with other nations is the Anti-Terrorism Assis~anqe Pr-Ogram for civilian law enforcement agencies of friendly foreign governments. The program is administered by the Department of State and over 1800 officials from 32 countries have participated during the nearly two ~ears of its operation. Federal, state and local law enforcement agencies and professional police associations supply most of the instruction for the program which provides a very valuable structure for developing a better working relationship with other countries facing the same threat. The Departments of Justice and Treasury and the FAA have provided support for the program. A first phase, the Executive Seminar, enables the U.S. and the participating country to exchange ideas and insights. The second and third phases are used to identify specific needs and to provide actual training in the U.S. of officials of the recipient country. In authorizing the ATA Program, the Congress established a requirement that participating countries be screened on the basis of their adherence to acceptable standards of human and civil rights and the Congress has the right to pass on prospective participants. The Bureau of Human Rights and Humanitarian Affairs reviews and approves each and every country before Congress is notified by the State -l'Z.,;-

Department of the intention of that country's participation in the ATA Program. Both the Department and the Congress seek to screen out those countries which have questionable human rights records We also have the option 1 where U.S. interests are compelling, to limit the extent of training to those foreign agencies or specific areas of operation which are directly and immediately relevant to the safety and protection of U.S. citizens. We make recognition and protection of human rights a dominant and pervasive theme in all instruction and we select training agencies --such as metropolitan police forces--which by word and example demonstrate to the foreign participants that ethical standards, professionalism and effective counter-terrorism must and can go hand in hand.

Actions Taken Over The Past Two Years. The pace of our cooperative international programs and other activities is quickening. We have intensified our bilateral relationships with friends around the world and begun discussing common counter-terrorism efforts with countries where we have not had such close ties;

We have dedicated more resources and given a still higher priority to collecting, analyzing and disseminating intelligence on terrorist groups and

activities abroad. -lJl-

We have improved the security of our embassies and consulates and heightened the security awareness of our personnel; we have begun to cooperate more closely with the private sector in sharing information on threats abroad and how to counter them; the Inman Panel provided an important outside review of what needed to be done to enhance security and an additional boost for obtaining the necessary resources. As noted by President Reagan, improved intelligence collection, better security and closer international cooperation helped us deter or preempt more than 100 international terrorist actions during the past year. This is in addition to the 23 domestic potential incidents reported by Mr. Webster. We have begun a new, more assertive phase in combatting the state supporters of terrorism, exemplified by the President's decision to sever all economic as well as political contacts with Libya, to persuade other governments to join us, and to retain the option of more forceful unilateral action should this cooperative campaign fail to stop Qadhafi. -11-

We have worked hard and successfully in international organizations such as the U.N. General Assembly and Security Council establishing that terrorism is a threat to all nations and should be considered as a crime. In the specialized agencies, aviation and maritime specialists are drafting new security standards. We have made effective use of recent legislative tools, such as the rewards programs, the Crime Act of 1984, and the Foreign Assistance Act. We believe it is useful to have more legal tools for the anti-terrorism effort. We support, for example, S.1429, which recently passed the Senate, making it a federal crime to kill or conduct other terrorist acts against Americans overseas. We also of course strongly back passage of the u.s.-u.K. Supplemental Extradition Treaty. President Reagan has approved the work of the task force directed by Vice President Bush which reviewed all aspects of our counter-terrorist policies and practices, and recommended a number of improvements.

Coordination. To insure maximum coordination for the U.S. response to terrorism, lead agencies have been designated by the White House. These responsibilities, recently reaffirmed by the Vice President's Task Force on Combatting Terrorism, give the State Department the lead agency responsibility for all incidents which take place -~ - outside U.S. territory. Within the State Department, the Bureau of Diplomatic Security has the responsibility for providing protection to U.S. facilities and personnel overseas and the Office of the Ambassador-at-Large for Counter-terrorism for the general measures of cooperation with foreign governments to combat terrorism. The Interdepartmental Group on Terrorism (IG/T), chaired by the Ambassador-at-Large, provides the forum for the major departments and agencies involved in combatting terrorism to meet regularly and share ideas, develop plans and make recommendations on policy and programs. Permanent members include representatives from the National Security Council, the Vice President's office, the Justice Department (which has the interagency lead role for domestic terrorism), The FBI, the Departments of Defense (both the JCS and the office of the Secretary) Treasury, and Energy, the Central Intelligence Agency the FAA, and the Drug Enforcement Administration. The IG/T provides a single point where the various departments and agencies can address questions and make proposals.

There are a number of specific working groups established under the auspices of the IG/T. The include one on rewards, one on improving technology such as equipment for detecting explosives, and another on coordinating anti-terrorist training by all agencies of the Executive Branch, civilian and military. -1.S-

When a crisis occurs, task forces are set up in the principal agencies to look after their specific concerns-- at the State Department to consider diplomatic issues, family liaison and overall coordination; at the FAA to consider the technical aspects of a hijacking,and:maintain . ~ liaison with U.S. carriers; at Defense to consider the possibility of using U.S. troops in the area, etc. During a crisis where the use of American force might be considered, a special high level coordinating group convenes almost immediately at the White House where key decisions are made.

Thus, with the other agencies, we at State have both a good informal working relationship and a formal structure from which flows many of the working relationships.

Some of the activities outlined above could be affected by the Gramm-Rudman Act. The FY 1986 appropriations level for the ATA program is $7.42 million. This would be reduced

by Gramm-Rudman adjustments to $7.10 million Following the

Inman Commission's recommendations for improved physical

security overseas, the Administration proposed a five-year

$4.4 billion program. The program, to be administered by the

new Bureau of Diplomatic Security, is pending before

Congress and could be affected by Gramm-Rudman.

Conclusion. We predict that on the international side, the

terrorism threat is likely to continue to grow and be with

us for at least another decade. There are too many causes,

too many diverse actors, and too many political, religious. -~- social and nationalistic sore spots in the world which generate individuals ready to become terrorists. Too many groups think they can make a political impact favorable to their particular cause--magnif ied mightily by the media around the world--and there are governments wpich:refuse to forgo the temptation of using terrorism as a cheap form of warfare. We should not be discouraged or panicked about it, but rather, keep our cool and determination. This will be a long process; there are no magic solutions or remedies. As the terrorists increase their activities however, we are increasing ours, and indeed trying harder to get ahead of them on our own and with other governments. We can take comfort in the large number of terrorist incidents preempted abroad, at the low level of terrorism in this country. But the big increase in the number and viciousness of international terrorism incidents, and the the even sharper increase in the casualties deliberately caused by the terrorists, and the fact that the U.S. remains as the top target shows clearly that the struggle is becoming more intense and we cannot afford to be complacent. The Reagan Administration is determined to keep at it, adding to and improving the tools we have. Strong Congressional support has been and will continue to be extremely important in this effort. I'll be happy to respond to any questions. HOUSE FOREIGN AFFAIRS COMMITTEE

SUBCOMMITTEE ON ARMS CONTROL, INTERNATIONAL SECURITY AND SCIENCE AND ON INTERNATIONAL OPERATIONS

Testimony By

Parker w. Borg Deputy Office of the Ambassador-at-Large for Counter-Terrorism

February 19, 1986 -· Mr. Chairman and members of the Committee, I am very pleased to have this opportunity to review with you today our progress in improving security for international air travelers and to give you an overview of recent actions undertaken to combat terrorism. Let me start with the overview first. The pace of cooperative international activity to combat terrorism is quickening, and substantial progress has been made over the past year. --We have intensified our bilateral relationships with friends around the world and begun discussing common counter-terrorism efforts with countries where we have not had such close ties; --As previously noted by President Reagan, efforts at improved intelligence collection, better security and closer international cooperation helped us deter or pre-empt about 100 international terrorist actions during the past year. --We have improved the security of our embassies and consulates and heightened the security awareness of our personnel; the Inman Panel provided an important outside review of what needed to be done. -2-

--We have made important progress through international organizations in establishing that terrorism is a threat to all nations. --We have made effective use of recent legislative tools--the rewards programs, the Crime Act of 1984 and Public Law 99-83--to strengthen our efforts with other countries. I think it is important to underscore that our effort and our success have been a joint ones. We have been working closely throughout the past year with all of the sections of the Executive Branch and have counted on the strong support from Congress, especially the interest of the House Foreign Affairs Committee. I would like to survey briefly first our efforts at bilateral, international and multilateral cooperation, followed by a discussion of our specific actions against Libya and conclude with a statement about our efforts to improve civil aviation security. Our bilateral efforts to combat terrorism are becoming more complex, with better exchanges of intelligence, more frequent high-level communications, cooperative efforts in counter-terrorism technology, and better judicial and -3-

military cooperation. More countries are establishing centralized counter-terrorism offices, able to coordinate the various parts of their bureaucracy, both on a routine operational basis and during a terrorist incident. Our bilateral cooperation to combat terrorism is already good and steadily improving.

Counter terrorism cooperation is on the agenda for every high level visit to the United States; other countries can have no doubt as to the commitment of the United States to combat terrorism by every means. Ambassador Oakley has led numerous inter-agency delegations to many nations for in depth discussions of counter-terrorism cooperation.

We have found the Anti-Terrorism Assistance Program to be a very effective policy tool for stimulating general interest by other countries in general cooperation and in stimulating support for specific United States policy concerns. It has helped us strengthen our policy dialogue with such states as Turkey, Greece, , the Gulf States,

Israel and Colombia. To date, 32 countries have participated in some aspect of the ATA program, with a total of over 1800 participants. The Office of Counter Terrorism and the Bureau of Diplomatic Security have cooperated closely in the administration of this program. There is no -4- doubt that there is a higher level of awareness in many countries of the dangers of international terrorism and a greater willingness to take effective actions against it because of the ATA program. The 1985 Annual Report of the Anti-Terrorism Assistance Program has just been submitted to the Congress and I offer it for the record. --The United States has had success in international organizations in obtaining more effective agreements and stronger resolutions against international terrorism. The United Nations Security Council has issued several statements condemning international terrorism, and acted unanimously on a us proposal in December against hostage taking. Also in December, the UN General Assembly adopted a strong resolution which unequivocally condemned as criminal wall acts, methods and practices of terrorism wherever and by whomever committed •.•• w The resolution specifically called on all states to take appropriate measures as recommended by the International Civil Aviation Organization (!CAO) and as set forth in relevant international conventions to prevent terrorist attacks. -5-

The International Maritime Organization (IMO) acted upon a United States resolution, introduced at the IMO's 14th

Assembly in November, 1985, to instruct the Maritime Safety

Committee (MSC)to develop measures for the prevention of terrorist attacks against passengers and crews on board ships. A detailed US proposal was favorably received by the

MSC at its meeting which ended February 5 and we expect adoption of a final text at the next MSC meeting in

September. The US proposal was based on Annex 17 to the

Chicago Convention and the ICAO Security Manual, with modifications necessary to make it suitable for application to the maritime situation. Although the mandates of ICAO and IMO are significantly different, we are grateful for

ICAO for making available to IMO its years of experience with security measures so that IMO could accomplish in a matter of months in the maritime area what took years to accomplish in international civil aviation affairs.

As a separate matter, we have for some time been engaged in an effort to encourage more states to become parties to the Tokyo, Hague and Montreal Conventions, which relate to aircraft safety, hijacking and sabotage. This effort has been going on for several years and has achieved such a -6- degree of success that these conventions are now among the most widely accepted internationally. The Tokyo Convention has 121 parties, the Hague 126, and Montreal 127. These recent activities by the United States in international organizations represent a good deal of recent success. U.S. policy in multilateral organizations for ' combatting terrorism is directed toward: (1) increasing public understanding and awareness of the nature of terrorism; (2)encouraging the development of internationally accepted standards of behavior and responsibility for individual states in preventing,deterring and punishing terrorism; and (3) encouraging effective international cooperation to combat terrorism, including adherence to existing international counter-terrorism conventions. The above cited actions make clear that progress is possible and that the system has recently been responding favorably and with a sense of urgency to our calls, and those of others, for action. --In contrast to these impressive developments in our bilateral relationships and with international organizations, multilateral cooperation to combat terrorism bt...:+ +h~ r~ _ llCl.c_~, hl:' 6-;j -::.c, - l)~-' among like-minded nations has gone more slowly}/\ For fY.::c1 re:-_'.'/~. -7- example, European states, partly as a result of our pressing them to do more to stop Qadhafi's support for terrorism, have organized a high level EC committee to coordinate actions on the problem. We welcome this effort by European states to address collectively the problem of international terrorism and we are seeking ways to cooperate, institutionally or informally, with this group.

Th~ Council of Europe's committee on combatting terrorism has proposed in recent days to expand the European Convention on the Suppression of Terrorism to additional states. We welcome the initiative and look forward to contacts with the council of Europe to explore how we might move forward with a broader convention. Cooperation in the Summit Seven context has been frankly less rewarding during the past year. We have sought as a first step with this group which represents some of our closest allies to revitalize the Bonn Declaration and obtain agreement to cooperate in specific other areas outlined in Summit statements at Venice, Ottawa and London, but the present political climate has not permitted the sort of multilateral cooperation which we believe in essential in this field. -8-

The United States has raised the idea for an International Coordinating Committee privately with individual members of the summit Seven group and collectively at the last Summit Seven experts meeting December 10, but found no support at that time for creating a more formal body. Nevertheless, we have broached the idea, and will continue to pursue the concept. We believe that we must develop a more institutionalized approach to multilateral counter-terrorism cooperation along this line. The US has found what we believe might be a more effective forum for cooperation among five close allies Great Britain, Italy, West Germany, Japan and Canada organized through the interior ministries of the six participating countries. This forum, which participants might eventually might want to expand to included other like-minded governments, holds a promise for the kind of joint or parallel actions against terrorism that are needed. These examples illustrate that some progress has been achieved, but also illustrate the broader problems in obtaining joint international actions against terrorism along the lines foreseen in Title V of the Foreign Assistance Act. We are keeping our objectives firmly in -9- mind and pressing them at every opportunity where acceptance by other countries provides a reasonable prospect for success. I would like to turn to recent events, and the United States reaction to them, to illustrate some of the topics I have just discussed. The attacks at the Rome and Vienna airports on December 27 in which 18 people were killed -- including five Americans -- and over 80 injured, convinced the United States that we had to direct more attention against Libyan support for international terrorism. These attacks came at the end of the worst recent year for international terrorist attacks, with the number of incidents increasing from 600 to 800 and the number of casualties from 1279 to 2223. Of those, 23 killed and 139 wounded were American. Most of this increase came from Middle East terrorism, aided by state support. Over the past three years, terrorist incidents in the Middle East, or caused by Middle East groups, have gone up from 109 to 286 to 378 (for 1985). It was this pattern of rapidly growing Middle East terrorism, with greatly increased casualties, more frequent targetting of US citizens and interests, and stronger state -10- support, which caused the Reagan Administration to draw the line for Qadhafi and Libya's direct involvement in terrorism. Libya is not the only state in the Middle East supporting and using terrorism: Syria and Iran remain very involved. But over the past six months Libya has become by far the most active, especially against Americans and Europeans. If Libya cannot be stopped, others can be expected to follow its lead. The connection between Libya and the currently most active terrorist group, Abu Nidal, merits a few words. Details are contained in the State Department's Special Report 138 of January, 1986, which I request be made part of the record of this hearing. over the last half of 1985 we know of Libyan money in the millions of dollars going to Abu Nidal, of Libya providing and buying him arms, of Abu Nidal and his top lieutenants living in Libya, of his killers being trained there and travel documents and other facilitative measures to permit Abu Nidal to carry out terrorist acts abroad being provided by Libya. Some of this evidence, such as the Tunisian passports used by the terrorists in the Vienna attack, is public. Some of it is highly classified intelligence, and to reveal it would help the terrorists beat our defenses. But there is no question -11- about the Libya-Abu Nidal connection or what Qadhaf i hoped to accomplish. By this new terrorist resource, the fanatical Libyan leader believed his limitless ambitions and wild dreams could become true, that the West as well as the Arab world would be so intimidated that they would accept him as a major force to be reckoned with on the regional and world scene. Against this background of escalating Libyan-sponsored attacks and the previous unwillingness of most governments to join in collective measures to stop the threat, the airport attacks were seen as a clear call for action and leadership by the United States. The President decided to take unilateral action, putting an end to the remaining US-Libyan commercial and financial relations, and called on other governments to send Qadhaf i and other governments a signal to stop supporting terrorism. This was also a moral issue; we did what we felt was right regardless of the position of other governments. There have been a number of reasons why the Europeans have been reluctant to act with us, both previously when we tried to exert pressure on Qadhafi and in the wake of the most recent attacks. These reasons, which also illustrate -12- the broader problems in obtaining stronger joint international action against terrorism, include: concern for the safety of their citizens in Libya or elsewhere if they were to join the US in strong action; skepticism over the effectiveness of economic sanctions; and other foreign policy interests in the region. Thus, first reactions in Europe to measures against Libya appeared to be negative. Europeans worried that they might lose Arab links and business, or that the United states was about to take some thoughtless action which would have unforeseeable repercussions in the Middle East, just as the British and French invasion of Suez did in 1956. But they were also afraid of a major confrontation within the Western Alliance should the United States demand that they at once apply full economic sanctions, or that we might apply an extraterritorial dimension and make our own decisions binding upon us subsidiary companies in Europe. Fortunately, our friends were reassured when the President's decisions were explained directly to them, that we were seeking collective application over time of peaceful measures rather than military action or immediate across-the-board sanctions. The also understood better our -13- actions when they had an opportunity to study the detailed intelligence on Libyan activities which we provided, identifying specific evidence and emonstrating the real seriousness of the threat. Although it is of course to soon to tell what the ultimate effect will be on Libya, and not all actions taken by European states will be made public, there was a postive response, in public or in private, by almost all the governments visited by Deputy Secretary Whitehead. Almost all the Western governments have agreed to cessation of arms supply to Libya, including existing contracts, and end to government credits for exports, tighter controls on Libyan entry and movement, and a promise not to substitute for departing American companies and technicians. All governments with which we spoke said they would consider additional measures, and we will hold them to this promise. This is a long term effort, but one we are monitoring closely. In addition to actions by European states, Arab governments, vocally supportive of Qadhafi initially, have not extended credit to Libya's faltering economy, nor taken retributive actions against the United States. The , despite rhetorical support and the dangerous policy -14- of supplying Qadhafi weapons, also show signs of unease and caution. Qadhafi has demonstrated his discomfort with us actions, both by posturing for the media and in looking for other areas, such as Chad, to show he can still exert force. However, President Reagan has made it clear to all that he is prepared to continue exercising responsible leadership by the United States, including the use of force, if necessary, to deter Qadhafi from his murderous policies. us efforts to obtain a boycott against Libyan Arab Airways has been strongly reinforced by the sanctions announced by President Reagan January 8, and the subsequent consultations with our European allies on the mission headed by Deputy secretary of State Whitehead. Few European states still have airline connections with Libya and we have asked each one of them to denounce their agreement. None have agreed so far, perhaps out of concern for their citizens still in Libya, but we are following the situation closely. Our actions to isolate Qadhaf i illustrate several aspects of our struggle to stop international terrorism. Qadhaf i is only part of the problem, and we are not losing sight of that fact. The counter terrorism effort is a long and complicated one, which must be pursued by a combination -15- of unilateral, bilateral and multilateral measures. There are no magic solutions. Most terrorism takes place abroad where our power is limited, our friends have a slightly different set of interests than we do, and the enemy is determined and ready to die. We will be rewarded for our efforts through persistence in seeking our objectives, through sensitive cooperation with our allies and through firmness with respect to terrorists and their supporters. We must recognize that our solutions will not always be accepted, and that we must remain flexible in how we achieve our goals. I would like to turn now to specific measures relating to the State Department's responsibilities in preventing acts of terrorism in the civil aviation context, bearing in mind that Mr. Matthew Scocozza of the Department of Transportation will also be addressing this issue in more detail, as will Mr. Jeffrey Shane, Deputy Assistant Secretary for Transportation Affairs in the Department of State. Improved civil aviation security has been one of our highest priorities -- and an area where we can see some results. It may be useful to review actions that have taken -16- place since the hijacking of TWA 847 from Athens last June. We had already been active in this field and some measures were already in place. Five months earlier a combined industry/government team had visited Athens and several other Middle Eastern airports and criticized security systems, particularly in Athens. This team carried out joint airport inspections and offered assistance to countries to improve security conditions. It also recommended specific amendments to the minimum security standards required by ICAO. The Greeks promised - seemed - to be responsive, so further action was not ~aken. The TWA hijacking prompted strong reactions. We issued a travel advisoryfor Athens. The Greeks responded angrily, especially when tourists and the New York Philharmonic cancelled their trips. But they quickly instituted the improved airport security standards we had proposed five months earlier. At the same time, behind the leaderhsip of Transportation Secretary Elizabeth Dole and her Canadian collegue, the ICAO Council expeditiously adopted a number of additional minimum security measures, and several other governments took rapid advantage of offers by State and FAA for technical assistance and training in civil aviation -17- security. Congress then passed legislation providing FAA and State with some leverage in their airport inspections around the world through the travel advisories and sanctions they were authorized to use. When we look back to last June -- eight months ago much has changed in civil aviation security. Security standards for aircraft and airports have been markedly improved. It is worth recalling that the attacks in Rome and Vienna in December took place in the public areas of the airports, perhaps because of the increasing difficulty of introducing weapons aboard aircraft. ICAO has never operated better and is carrying out its mandate to the fullest. The international community has found a new consensus for improved aviation security measures. More remains to be done, specifically in the area of creating more binding measures, but when we look back, even over this short period of time, the institutional arrangements to prevent terrorist acts in civil aviation represent permanent progress. In conclusion, I would like to note that we have made important progress over the past year not only in developing an improved international consensus against terrorism, but -18- also in taking a number of concrete steps unilaterally, bilaterally with our friends and in international organizations. I believe we will be able to pre-empt and deter a greater number of terrorist acts in 1986 than we did in 1985, but much more work needs to be done until we can eliminate this modern scourge. The task is not an easy one and there are no quick fixes. We look forward to continued close cooperation with the Congress in the critical area of U.S. policy. Mr. Chairman, members of the Committee, I will be happy to answer any questions you may have. EDITORS' PAGE BY WILLIAM P CHESHIRE ' Renew Reagan's 'Rambo' Lesson l

- .....• ollowing the twin airport massacres of Dec. 27, U.S. business in Libya - an action likely to benefit Europe more when Arab terrorists demonstrated their manhood than it hurts Qaddafi. Meanwhile, it is almost a faux pas to bring by shooting into crowds of women and children, up the terrorist nests to which Qaddafi gives squatter's rights. the world reacted with predictable aplomb. That is Eliminating them is the first step - not one or two of them, as a to say, everybody expressed regrets - or praise, in meaningless cryptogram, but all of them, simultaneously, together the case of Col. Muammar Qaddafi - yawned, with similar operations elsewhere. · stretched and went back to work. Finally there's the matter of Palestinian rights, to which the Washington, screwing up its courage, did manage to wag a president alluded respectfully at his Jan. 7 news conference. Why finger at Qaddafi, believed to have collaborated with the gunmen. is the subject even discussed? As long as the Palestinian cause is This action, regarded as unduly provocative, caused almost as represented by Abu Nida!, and Arafat, decent men much consternation among our European allies as among the and women, including Arabs, ought to flee from it, as from any waggee and his criminal associates. contamination. For those with strong stomachs, here is a quick summary of True, during the creation of a homeland for the survivors of the civilization's responses to date. Nazi Holocaust, the were effectively uprooted (though • After a two-week delay, President Reagan ordered economic the contribution made by Arab rejectionists should not be dis­ sanctions. counted). But injustice is proportional. • Italy's Prime Minister Bettino Crax.i, having conferred with Whatever the Palestinian grievance, the reservoirs of compas­ his police and intelligence chiefs, announced that "proven and sion, increasingly drawn down by the victims of terrorism, run active involvement of the Libyan government in terrorist actions" dry. , confined to a wheelchair aboard the Achille would force-are you sitting down? - a review of Rome's Libyan Lauro, is shot and shoved overboard; Natasha Simpson, 11 years policy. The investigation is continuing at snail speed. old, is gunned down in the Rome airport; and the perspective • West Germany, which capitulated to Qaddafi even when eight necessarily shifts. of its own citizens were held for ransom two years ago, was The Palestinians, in whose "good cause" children and cripples -predictably "unreceptive" to American pleas for economic disen­ are murdered, can hardly expectthat cause to be among the world's gagement. A spokesman said the Bonn government might collabo­ top priorities - even a world as numb as ours is to its affirmative rate in punitive measures short of economic sanctions, provided responsibilities. Qaddafi were implicated in terrorism. To satisfy Bonn, Qaddafi As for Reagan, who is not numb (however confused), the would have to be nabbed at the El Al counter with a smoking maintenance of law and order falls on him as chief magistrate of Kalashnikov. the civilized world, and plainly he needs help. Won't someone • The U.N. Security Council took the high ground, decrying show him ''Rambo" again? the airport massacres but, at the urging of the murderers' Third World sympathizers, imploring the survivors to show restraint. Cheshire is editor ofthe editorial pages ofThe Washington.Times. • The , representing the consci~nce of Islam, was stinting in its criticism of those coreligionistS who murder the innocent and are quick to discourage any kind of punishment. • , upstaged and increasingly desperate, de­ nounced the new wave of terrorism in the Mediterranean. Arafat is that fabled fellow, the Arab moderate. Last November in Cairo he declared that shooting women and children was to be coun­ tenanced only in Israel, the West Bank and the . • Brave France, high-minded Austria, principled Great Britain - everywhere it was the same. Even Israel, the IS BACK and IS HE MAD ! real target wherever Arab terrorism strikes, appeared to bend under intensifying pressure from Washington, the temperature of whose outrage approximated the weather outside by New Year's Day. What should have been the world's response? It seems clear enough, assuming that civilized nations still be­ . Jieve that criminals should be punished, even ·at the cost of commercial inconvenience. Libya owns 15 percent of Fiat, the Italian motor company. This property might have been confiscated as an indemnity to the victims of terrorism, or simply confiscated. If Rome resisted, Fiats and even Guccis could have been embargoed. Oil, of course, is Libya's sustenance. Qaddafi's economy, such as it is, is kept aloft by the presence of Western techni­ cians and oil companies. Since 1981, the United States has barred the import of Libyan oil, and now Reagan has outlawed

80 INSIGHT I JANUARY 20, 1986 "Peasants must be able to own their own land, their own houses and their own cattle. People must be free to practice their religions and traditions."

I black Africa know the truth. They know its traditions, values and civilization were helicopters and artillery will stand uncon­ that Nigeria offered to replace the Cuban worth fighting and dying for. I think that tested along the borders of Zaire, Zambia, and Soviet-bloc troops with Nigerian the Third World, through these struggles, Namibia and Botswana. Not UNITA alone, troops. But the MPLA leadership refused, has helped to give the West the courage to but all of central and southern Africa awaits showing the whole world that their real fear oppose the Soviet Union - to provide a the decision by the United States. is not the South Africans but UNITA, the cure for what Alexander Solzhenitsyn calls We were all encouraged by the decision Angolan people and the nationalists within the Western disease. Our struggle in An­ of the U.S. Congress to repeal the Clark theMPLA. gola, the battle of other freedom fighters, Amendment, which forbade U.S. assis­ Yes, UNITA receives aid from the Re­ is the battle for the West and its values. tance to the forces of freedom in Angola public of South Africa. We have also re­ We who fight these wars of national and left us for 10 years alone against the ceived support from China, Arab nations liberation see the unity of our cause and the Cubans. Now the United States must take and other black African countries, and common enemy we face - Soviet imperi­ the next step and commit the military aid much of that support has been shipped alism. As a result, representatives of the that will allow us to defeat the Cubans and across the Namibian border. But it is hyp­ freedom fighters of Angola, Laos, Af­ Soviets in Angola - antiaircraft weapons, ocritical ·of the Soviets to claim that this ghanistan and Nicaragua met in Jamba on the Red-eye missile and Stinger missile, means we somehow endorse the Pretoria June 12, 1985, to sign the Jainba Accord and antitank weapons. government. We oppose apartheid. Fortu­ and announce the formation of the Demo­ With those arms we can protect our nately, it is a dead ideology. It cannot be cratic International. We who fight the battle people from air and armor attacks and drive exported. Even in South Africa everyone for Western values of democracy, freedom back the Cubans and Soviets through the talks about how to move away from the of religion, freedom of speech, the right to continuation of the guerrilla war that we apartheid system. own one's home and some land, have have waged for l l years. joined together. Now we ask the West to We need you to insist at the United American Obllgatlons join us. Nations and other international forums that Angola was the first nation to begin its The strategic case, the self-interest of the Cubans and Soviets leave Angola and guerrilla war against Soviet colonialism. the West and America, is equally compel­ that the promised elections be held. With But we are not alone. Today the brave ling. Should massive Soviet air and armor your military and political support, other peoples of Afghanistan, Kampuchea, attacks succeed in defeating UNITA when nations will follow your lead and give us Laos, Nicaragua and Ethiopia are fighting the dry season begins next March, then aid. their own wars of national liberation. 45,000 Cuban troops and advisers, thou­ Do not underestimate the importance of We fought and carried on while the West sands of Eastern-bloc "technicians" and an your decision. For Angola is the Munich of went through a crisis of faith, wondering if untold quantity of tanks, fighter planes, Africa. Hesitation, the refusal to aid UNITA in its fight against the Cubans and Soviets, will be taken as a signal by all the countries in the region that the United States has abandoned tbem to the Soviets as the West abandoned Czechoslovakia and Eastern Europe to Hitler in 1938. Do not suppose that Zaire, Zambia, Botswana and Namibia will remain of the West when faced with an unopposed base in Angola. They will be forced to make their political accommodations with the Soviets just as most of Eastern Europe fell under Nazi political domination without a shot being fired. The loss of the sea route around the Cape and the loss of the strategic minerals found in central and southern Africa would be a crippling blow to the economy and defense of the West. That is why I say that UNITA is the key to Angola, Angola is the key to Africa and Africa is the key to the West. I am not alone in this assessment. The Soviets agree.

~ Savimbi is founder and president of ~ UN/TA, the National Union for the Total lil Independence of Angola. This· article is ~ reprinted, with permission, from the winter :S edition of The Heritage Foundation's By establishing schools, guerrillas can win lthe support of the people. Policy Review. \ INSIGHT I JANUARY 20, 1986 79 CU.RRENT NEWS EARLY BIRD EDITION

WASHINGTON TIMES WALL STREET JOURNAL WASHINGTON POST 7 March 1986 Pg. 1 7 March 1986 Pg.46 7 March 1986 Pg.1 - Air Force to spend Report Urges Boost Panel Backs $45 billion to build In U.S. Measures its Stealth fighters Reorganizing Against Terrorism. By Hugh Vickery ' 2 (~ THE Wl'SHINGTON TIMES Of Military By ROBERT w. MERRY '() I

WASHINGTON POST 7 March 1986 Pg. 4 WASHINGTON POST I 2 More House Panels Bar Contra Aid 7 March 1986 Pg. 1 I Third Committee Backs It: Floor Jbte Set for March 19 t President's I :.:; ... By Milton Coleman aragua are "communist dupes," ;.·; · ·· and F.dward Walsh Barnes said, "would be laughable if W..a.;.,.ton p,., Staff Writers they were not coming from the president of the United States and '87 Budget Two more House committees his top advisers. Frankly, I do not voted yesterday to disapprove Pres- think we have heard such offensive ident Reagan's request for $100 nonsense from our top political Rejected million in aid to the contras in Nie- leaders since the 1950s. These aragua, while Democrats and Re- statements are the .moral equiva- publicans .alike warned the White lent of McCarthyism." Barnes, a Senate Panel Vote . House that its strident anticornmu- leading opponent of aid to the con- nist rhetoric is hurting its own tras, added that the administra- Underlines Reagai:i 's cause. tion's arguments "are probably do- The House Appropriations Com- ing more to unite the Congress Fiscal Difficulties rnittee, on a voice vote, recom- against his policies than anything I mended rejection of the aid, while as an individual could do." the House Foreign Affairs Commit- Responding to Kassebaum, White By Helen Dewar tee voted 23 to. 18 against the House communications director Wuhington Posl Staff Writer measure. Patrick J. Buchanan said, "We're The Republican-controlled Sen­ A third panel, the House Armed not questioning anyone's patriotism or motives .... We're questioning ate Budget .Committee voted 16 to Services Committee, also acting on the wisdom and judgment" of critics 6 yesterday to reject President a voice vote, recommended approv- of the aid. . .Reagan's fiscal 1987 budget despite al, completing preliminary House But asked yesterday whether he 1.protests that the committee was action and setting the stage for a agrees that fe>es of the aid package !engaging in "president-bashing." Ooor vote now scheduled for March are supporting-communism, Reagan . After the vote, committee Chair­ 19. The House Permanent Select replied, "If so, inadvertently." He Iman Pete V. Domenici (R-N.M.) Committee on Intelligence voted 9 added that he had had enough ex- jtold reporters that he is meeting to 7 Wednesday for disapproval. perience with "communist subver- \pnvately. with Sen. Lawton Chiles 1(D-Fla.), ranking Democrat on the While the panels were voting yes- sion" when he was in the movie panel, in hopes of coming up with a terday, members of the House and business "to know that a great many bipartisan budget resolution, pos· the Senate complained about the people are df;ceived and not aware sibly by the middle of next week. tone and thrust of the administra- that what they're doing is inimical "We're very hopeful ... but we're tion's argument on behalf of the to the incerests of the United not there yet," he said. plan. States." In a further defeat for the pres­ Sen. Nancy Landon Kassebaum Reagan himself has set much of ident, a majority of House Repul).. (R-Kan.) complained of "distortions" the tone that Kassebaum and others licans joined most of their Demo­ from the administration and of in- criticized yesterday. Pressing Wed- cratic colleagues in defying veto stances of "simplistic reasoning" nesday for the aid, he said, "If we threats from the White House and that were "highly offensive." don't want to see the map of Cen- approving a relatively small deficit­ Arnong the "distortions" she cited tral America covered in a sea of reduction measure left over from was "the suggestion that this is a red, eventually lapping at our own last year. The tally was 314 to 86, purely partisan issue-a disagree- borders, we must act now." with Republicans voting 92 to 76 ment between Republicans in white , Kassebaum and Sen. Daniel J. for it hats and Democrats wrapped in red Evans (R-Wash.) met with Secre- Meanwhile, the Senate began banners." Another was "the argu- tary of State George P. Shultz yes- debate on a constitutional amend­ ment that this is a matter of patri- terday and complained &hat their ment to require a balanced budget otism-those who Jove America concerns about the contra leader· that Reagan has endorsed, but the will support the president and those ship, effectiveness of the current amendment would allow tax tn­ who oppose want to abandon San aid program and the goals of U.S. creases to achieve the balance, Diego to the Sandinistas," the policy had not been addressed. while Reagan wants a provision out­ lawing such increases. The amend­ M The two and other key Repub- arxist government in Nicaragua. lican senators told Shultz that the ment seeks to assure balanced bud- In the House, Rep. Michael D. Barnes (D-Md.) compared the ad- aid proposal would not pass the Re- B UDGE T ••• Pg. 4 ministration's tactics to those of the publican-controlled Senate Foreign Relations Committee in its present late Sen. Joseph R. McCarthy (R- form so the administration is now the Senate floor. Wis.) during the 1950s. expected to bypass that committee ------Accusations that opponents of d k h . h Staff ~rifer foan~e Omang the administration's policy in Nie- an ta e t e measure straig t to co11tributcd to tJ11s report. CURRENT NEWS "EARLY BIRD," is published daily at the Pentagon. Editors, Cris Schall, Charles Bailey; TV/Wire News Hi~lights, Taft Phoebus, Mike Tiuow, Charles Bailey; Layout-Graphics, Mike Tissow, Barry Bock. 2 at~e B.wfJiugton mitttes WEDNEsDAY, APRIL 30, 1986

JACK KEMP

mericans have over• terrorist acts belier that a group which the pres­ deny visas to U.N. headquaners to whelmin1ly supported are aimes, and thUe is DO earthly ident has labeled a "terrorist organ­ anyone whose entrance might im­ the president's dec:isioo to ruson wby their perpetrators ization" should be allowed to operate peril U.S. security, an~ successive strike out against Ubya's should be immune Crom justice. . ln the middle or 9ur capital city as If administrations have exercised that in!rastruaureA or terrorism. As a na­ There are at least six steps worth It were Just another diplomatic: out· right on many occasions. tion that loves liberty and freedom. exploration. post. The United States could, as an I suggest that Yasser Arafat has we have come to realize that we are The first ls for the Justice Oepan­ act of policy, close It down. More­ amply demonstrated his eligibility ea.gaged iD the moral equivalcol of ment to convene a grand Jury to fn. ovei: the PLO office In Washington ror exclusion. It ls Mc Arafat who war; that international terrorism is 'Vatigate the series or c:tjm1nal acts has Called to register under Sec:tlon contiols the billion-dollar budget or iD reality a war against the dezDoc. that NM. been committed against 2386 or the criminal code (requiring the PLO and provides the salaries of rac:ies; and that we must be williDI the United States and its citizens by the registration of organizations un· thegreatmajorityofcommaod~ ID employ all appropriate means at Yasler Arafat's PLO. A grand Jury der Corelan control that are engaged and Cedayeen. It ls Mt: Arafat who our d\sPOSa1 ID our defense. can receive evidence in secret. and in •civilian mWtary activity") and controls the worldwide network or But it is DOt Ubya alone that em­ It bas wide powers or subpoena. U It should be subject to prosecutlo~ for embassy·Jike PLO offices and mis-· ploys cadres or terrorists. For oow, finds violations of U.S. laws, indict· that violation. slons, whose diplomatic: Immunity CoL M•sammar Qaddafi, Ceamred on meats should be issued. A fifth step would be legal ac:tlon and pouches are used to move peo­ the cover of nme mapzioe. may be The second ls for the Justice De­ ple, money, and equipment to cany iD the public limelilht u a master­ partment to explore the possible Ift time that Yasser out violent acts with Impunity. It ls mind of iDtematioaal terror - and prosecution or the PLO·under the Mi:: Arafat who controls the assets ri&htlY so. But iD the shadows. Car Racketeer InCluenced and Corrupt Arafat and other that are used to make exchanges and rrom passi"Ve. others are also at work Organizations Act. This statute sponsors of terror alliances with the Sandinistas and iD this deadly and evil end~ makes It unlawful for · an organ­ the Red Brigades and the Baader Hiah on this list ii the Palestine Ub­ ization to engage In a pattern .or . come to understand Meinhor gang - Indeed, as the uation Orpoizatioll. criminal activities, and imputes By Vasser Arafat's ac:couatiag, White House reported In 1893. •with c:rimiDal "liability to the leadership that crimes against terrorist and guerrilla organizations 1985 was a aood year for the PLO. It for the criminal acts or its Cunc:tlon­ around the world.• wu a year iD which '"the Palestine aries. Those who tra.ID, equip, and the U.S., our citizens, revolution carried out 62 heroic op­ direct terrorist organizations should A5 we acknowledge Mt: Arafat's erations• - by which he means be held ac:c:ountable ror terrorist or our property, will directorship or the PLO, so should armed aaacks apiDsl a variety of acts. RICO may be one way or ensur­ we ac:c:ord him the appropriate not go unpunished. treatment under our laws. t&rlets. principally civilian, aad that ac:c:oun~bility. inl or course, action on these and many Americ:aD. Yet despite lbb A third step would to obtain a be other legal options not, in itself, be&VY IDll and loss of life. be bas said. warrant for Mi:: Ararat's arrest for will "'ltilootcnouP. Wemustbavemore against the PLO mission in New put an end to the threat of PLO ter· the murder or U.S. Ambassld6r.Cleo roe . We must also consider what acts of resiswlc:e." addiDe. ·1 don't Noel. Ac:cordlng tn press accounts, York. It enjoys no diplomatic: lmmu· simply want. I demand. more com­ nlty under any agreement that the other actions may be necessary and mando operations •••• the United States has a tape record· be prepared to act. But these limited Ing or a telephone conversation in United States has signed. Again, the And lest we iD the United States United States could as an act of legal measures are eminently within misunderstand, Mr. Arafat ex· which the PLO leader personally or­ policy close It down. The N.Y. mis• thepowerbfthe United States. They ders Mt: Noel and other diplomats plaiaed iD November last ~ .. We lion would also be a target ror c:ao vastly complicate the operations are oa the tbresho1d of a fierce battle killed. The Justice Department ob­ criminal justice procedures aimed or the PLO - particularly if supple­ - DOt an lsraeli·Palemafaa battle, talDed a warrant for the arrest or at its parent organization. mented by an active policy or asking but a Palestinian-US. battle.• Muhammed "Abu• Abbas on sub­ . Ftnally, we could symbolize our our allies to surrender terrorists un­ I tbiDk the time bas come tO take stantially similar evidence. U the abhorrence ror all the reprehenslble der Indictment ror extradition. evidence exists against Ml:. Arafat ~ Arafat at bis word - aad bold deeda that Mt: Arafat represents by Our American tradition is b.im accountable ror biJ deeds. andjurisdic:tionobtaias, then he. too, making lt clear that. lf Mr. Ararat grounded In the rule of law. We Amonc tbe means at our disposal. should be made to answer Cor bis tries once again to come to New York accept as an article or faith that no little utiliud to date. are the iastru­ crimes. to we the United Nations to wave bis person ls above the la~ It ls time that loents or lepl process available A fourth step would be to take le­ gun. we will not grant him an entry Yasser Ararat and other sponsors of against Mr. Ara.fat and bis PLO. For gal action against the Pt() office In visa. The U.S. Congreas n:sened ID iDtematlonal tenor come to under­ amonc other tbiols, WashiDP>a. D.C. lt is almost beyond · 1947 ~.L. 357, Sec. 6) the right to stand that crimes against the United States, our citizens. or our property, will not 10 unpunished.

Jade Kemp ls a Republican m~m· tier of the House of Representat\\les from New York. Abraham D. Sofaer

Current Policy The War Powers No. 832 Resoluti and An terroris Operations

United States Department of State Bureau of Public Affairs Washington, D.C.

Following 'is a statement by Abraham Congress until United States Armed Forces aware and which it has already ap­ D. Sofaer, Legal Adv'iser, before the are no longer engaged in hostilities or have proved in principle is one important fac­ Subcommittee on Arms Control, Inter· been removed from such situations. tor to be considered in determining the national Security and Science of the The resolution specifies only that nature and timing of consultations. House Foreign Affairs Committee, consultation occur "before introducing" In practice, the form and substance Washington, D.C., April 29, 1986. armed forces in the situations specified, of consultations have depended upon the as well as "after" each such introduction circumstances of each case. In some in­ I am pleased to have the opportunity to until the situation ends. It does not stances, such as the introduction of U.S. appear before you today to discuss the define the nature of the consultations forces into Egypt to participate in War Powers Resolution in the context required, but allows the President to de­ peacekeeping operations or the case of of recent events. I would like to begin termine precisely how such consultations the Vietnam evacuation, the situation by setting out some general considera­ are to be carried out. Significantly, in permitted detailed consultations well in tions regarding the resolution and then making the requirement applicable only advance of the action contemplated. In focus on the application of the resolution where consultation is "possible," the the case of the Tehran rescue mission, to specific cases which are of particular resolution expressly contemplates that prior consultation was not possible interest to the subcommittee. consultation in a particular case will because of extraordinary operational depend on the prevailing circumstances. needs. Basic Framework Over the years, both before and Reporting Requirement. Section 4 after the resolution was adopted, the of the resolution requires that the Presi­ The War Powers Resolution was en­ executive branch has engaged in consul­ dent submit, within 48 hours after the acted in 1973 in order to ensure con­ tations with the Congress in a variety of introduction of U.S. forces, a written gressional involvement in situations in circumstances involving the possible report to the Congress in three circum­ which the United States may become deployment of U.S. forces abroad. Con­ stances. A report must be submitted engaged in hostilities with other states. sultations have occurred in cases where when U.S. forces are introduced "into To that end, the resolution contains cer· the resolution might have been thought hostilities or into situations where immi­ tain requirements concerning consulta­ to require them and in cases where it nent involvement in hostilities is clearly tion, reporting, and termination of the clearly would not (and the executive indicated by the circumstances." In use of U.S. Armed Forces. Of course, branch has typically been careful to addition, a report must be submitted this and other administrations have ex­ preserve its position on these matters when U.S. forces are introduced "into pressed serious doubts about the wis­ when consulting). The purpose of such the territory, airspace or waters of a dom and constitutionality of various consultations is to keep the Congress foreign nation, while equipped for com­ parts of the resolution. informed, to determine whether the bat" (with certain specified exceptions) Consultation Requirement. The Congress approves of a particular action or when such forces are introduced "in consultation requirement is contained in or policy, and to give the Congress an numbers which substantially enlarge section 3, which provides: opportunity to provide the President United States Armed Forces equipped with its views. especially where it may for combat already located in a foreign The President in every possible instance disagree with Lhe policy. Consultations nation .... " shall consult with Congress before introduc­ are not intended to involve the Con­ Both Republican and Democratic ing United States Armed Forces into hostili­ gress in reviewing the detailed plans of presidents have provided written ties or into situations where imminent a military operation. The degree to involvement in hostilities is clearly indicated reports to the Congress with respect to which the President is implementing a U.S. deployments abroad as a means of by the circumstances, and after every such policy of which the Congress is well introduction shall consult regularly with the keeping the Congress informed, while reserving the executive branch's posi­ foreign affairs, to direct and deploy U.S. distinguished from "forces equipped for tion on the technical applicability and forces in the exercise of self-defense, in­ combat" and their actions against ter­ constitutionality of the resolution. cluding the protection of American rorists differ greatly from the "hostili­ Reports were submitted by President citizens from attacks abroad. From the ties" contemplated by the resolution. Ford in connection with the Indochina time of Jefferson to the present, presi­ Nothing in the legislative history evacuations and the Mayaguez incident dents have exercised their authority un­ indicates, moreover, that the Congress and by President Carter in connection der the Constitution to use military intended the resolution to cover deploy­ with the Tehran rescue mission. During force to protect American citizens ments of such antiterrorist units. These the Reagan Administration, reports abroad. units are not conventional military were submitted with respect to U.S. I would also mention that serious forces. A rescue effort or an effort to participation in the Multinational Force constitutional problems exist with capture or otherwise deal with ter­ and Observers in the Sinai and the respect to section 8(a) of the resolution, rorists, where the forces of a foreign na­ Multinational Force in Lebanon, the which purports to limit the manner in tion are not involved, is not a typical deployment of U.S. aircraft in connec­ which the Congress may, in the future, military mission, and our antiterrorist tion with the situation in Chad, and the authorize the use of U.S. forces. I do forces are not equipped to conduct sus­ introduction of U.S. forces into Grenada. not believe that one Congress by statute tained combat with foreign armed More recently, a report was submitted can so limit the constitutional options of forces. Rather, these units operate in concerning the encounter with Libyan future Congresses. Nor can Congress secrecy to carry out precise and limited forces during U.S. military exercises in control the legal consequences of its own tasks designed to liberate U.S. citizens and near the Gulf of Sidra in late actions. If a particular congressional ac­ from captivity or to attack terrorist kid­ March, and a report was submitted with tion constitutes legal authority for the napers and killers. When used, these respect to the April 14 operation against President to undertake a specific opera­ units are not expected to confront the Libya. Indeed, the executive branch has tion, I doubt that one Congress can military forces of a sovereign state. In a provided information to the Congress in change that fact for all future times by real sense, therefore, action by an anti­ many cases where no relevant statutory requiring a specific form of approval. terrorist unit constitutes a use of force requirement existed. that is more analogous to law enforce­ ment activity by police in the domestic Recent Cases context than it is to the "hostilities" be­ Termination of Use of U.S. Forces. The War Powers Resolution was en­ tween states contemplated by the War Section 5 of the resolution provides that, Powers Resolution. within 60 days after a report is sub­ acted in the shadow of U.S. involvement in the Vietnam war and of the so-called I might note, in this connection, that mitted or required to be submitted, the other types of cases involving military President must terminate the use of Watergate scandals. In more recent years, however, issues have been raised deployments-such as the movement of U.S. forces unless the Congress has warships into or through foreign ter­ declared war or specifically authorized under the resolution in situations that bear no resemblance to the Vietnam ritorial waters, the deployment abroad the use of such forces, has extended the of security personnel such as marine em­ 60-day period, or is physically unable to war and, in fact, may not have been contemplated at the time of its adoption. bassy guards, and transits of combat air­ meet as a result of an armed attack on craft through foreign airspace-have the United States. The section also pro­ generally been considered to be outside vides that the President must remove Deployment of Antiterrorist Units. the scope of the resolution. The ration­ U.S. forces from engagement in hostili­ It is a regrettable reality in today's ale for regarding the resolution inap­ ties abroad "if the Congress so directs world that Americans abroad are plicable is at least as strong in the case by concurrent resolution." The legisla­ increasingly subjected to murder, kid­ of limited, antiterrorist deployments as tive veto provision of the resolution can­ napings, and other attacks by terrorists it is in these other cases, absent the in­ not stand in the face of the Supreme who seek to further their political ends volvement of the armed forces of a Court's 1983 decision in INS v. Chadha. through such means. The hijacking last foreign state. The executive branch has historically year of TWA Flight 847, with the Even assuming the resolution were differed with the Congress over the murder of Navy diver Stethem, is a wisdom and constitutionality of the applicable to the deployment of special well-known recent example. In that antiterrorist units, the fact is that con­ 60-day provision of section 5. As Presi­ case, we had no reason to believe that dent Reagan made clear in signing the sultations may not-and generally will the Government of Lebanon had encour­ not-be possible in such cases. The Multinational Force in Lebanon resolu­ aged or otherwise supported the ter­ tion on October 12, 1983, the imposition existence and purpose of these units is rorists; it was simply unable to control well known to the Congress. The need of such arbitrary and inflexible dead­ them. In such a situation, the President for swiftness and secrecy inherent in the lines creates unwise limitations on may decide to deploy specially trained nature of those activities is so extraordi­ presidential authority to deploy U.S. antiterrorist units in an effort to secure forces in the interests of U.S. national nary that consultations prior to deploy­ the release of the hostages ·or to capture ment might well jeopardize the lives of security. Such deadlines can undermine the terrorists who perpetrated the act. foreign policy judgments and adversely our units and the hostages they may Does the War Powers Resolution re­ seek to liberate. affect our ability safety and effectively quire consultation and reporting in this to deploy U.S. forces in support of those kind of situation? Engagement During Military Exer­ judgments. We have substantial doubt that the cises. Issues under the War Powers Moreover, the President's constitu­ resolution should, in general, be con­ Resolution have also been raised where tional authority cannot, in any event, be strued to apply to the deployment of U.S. forces have engaged in a military impermissibly infringed by statute. Sec­ such antiterrorist units, where opera­ exercise in conformity with international tion 8(d) of the resolution itself makes tions of a traditional military character law. The incident in the Gulf of Sidra in clear that the resolution was not in­ are not contemplated and where no con­ late March illustrates the situation. tended to alter the constitutional frontation is expected between our units Does the resolution require the Presi­ authority of the President. The Presi­ and forces of another state. To be sure, dent to consult and report in this kind dent has constitutional power, as Com­ the language of the resolution makes no of case? mander in Chief and as the nation's explicit exception for activities of this Some factual background will help to principal authority for the conduct of kind, but such units can reasonably be put this question in perspective. The

2 United States is committed to the exer­ imminent involvement in hostilities was perts from the Departments of State cise and preservation of navigation and "clearly indicated by the circum­ and Defense provided pertinent informa­ overflight rights and freedoms around stances." The United States has con­ tion and responded to all questions the world. That is the purpose of the ducted its exercises not only in Sidra asked by members; and the President freedom of navigation program. A but around the world, not only in March sent a written report to Congress deliberate decision was made during the but for years-and, in most instances describing the events of March 24 and Carter Administration to discourage or without hostile response. We have, i~ 25, the actions taken by U.S. forces, and negate unlawful claims to extended fact, been in the Gulf of Sidra area 16 the legal justification for those actions. jurisdiction in the oceans. That policy times since 1981, and we have crossed was affirmed in 1982 under President Qadhafi's so-called line of death seven Military Action in Self-Defense. Reagan, and in 1983 the essence of the times before the operation last March. The third kind of situation in which war policy became public in a statement on Only once before did Qadhafi respond powers considerations have been raised U.S. oceans policy. That statement with military action, and, in that in­ recently is that in which U.S. forces made clear that the United States would stance, he was singularly unsuccessful. take legitimate action in self-defense continue to work with other countries to While we must always be aware of against facilities or forces of another develop an acceptable oceans regime. It the risks and be prepared to deal with state because of its sponsorship of ter­ also made clear that the United States all contingencies, we have every right to rorist attacks against Americans. In the would protest the unilateral acts of expect that neither Libya nor any other April 14 operation against Libya, U.S. other states designed to restrict the country will take hostile action against forces undertook military action in self­ rights and freedoms of the international U.S. forces while they are lawfully in defense against five terrorist-related tar­ community in the use of the oceans and and over areas of the high seas. The gets in order to preempt and deter that the United States would exercise threat of a possible hostile response is Libya's unlawful aggression through ter­ and assert those rights and freedoms on not sufficient to trigger the consultation rorist force against the United States a worldwide basis. requirement of section 3, which refers and its nationals. Does the War Powers The exercise of our rights provides only to actual hostilities and to situa­ Resolution apply to a case of this kind? visible and powerful evidence of our tions in which imminent involvement in The use of U.S. forces to conduct a refusal to accept unlawful claims. The hostilities is "clearly indicated" by the military strike against the facilities of a United States has accordingly protested circumstances. hostile, sovereign state in its own terri­ and exercised rights and freedoms with Where a peaceful, lawful exercise tory falls within the specific terms of respect to claims of various kinds: does, in fact, result in hostile action to the consultation requirement of section unrecognized historic waters claims ter­ which U.S. forces must respond in im­ 3 of the resoll!tion. In this context, ritorial sea claims greater than 12 ~auti­ mediate self-defense, such an isolated however, a critical element is flexibility. cal miles, and territorial sea claims that engagement should not normally be con­ As indicated earlier, section 3 expressly impose impermissible restrictions on the strued as constituting the introduction envisions the possibility that, in some in­ innocent passage of any type of vessels of U.S. Armed Forces into a situation of stances, the President might have to act (such as requiring prior notification or actual or imminent hostilities for the without prior consultations. In any permission). Since the policy was estab­ purpose of the reporting requirement of event, he must seek to consult in a man­ lished, the United States has exercised section 4 of the resolution. No report ner appropriate to the circumstances, and the need for swiftness and secrecy its rights against the objectionable was submitted in the case of the 1981 claims of over 35 countries, including Sidra incident, in which two Libyan air­ in carrying out a military operation is a the Soviet Union, at a rate of about craft were shot down after they fired at vital factor to be weighed in determin­ 30-40 freedom of navigation exercises U.S. aircraft. Similarly, during the ing the nature and timing of consulta­ per year. period in which U.S. peacekeeping tions that may be appropriate in a given forces were deployed in the Beirut area situation. The United States has followed this In the case of the April 14 opera­ policy in connection with Libya. When in 1983, many incidents occurred in which hostile forces attacked and U.S. tion, extensive consultations occurred Qadhafi came to power in Libya, it was with congressional leaders. They were not long before private firms saw their peacekeeping forces responded in im­ mediate self-defense. Yet, no separate advised of the President's intention interests expropriated. Then, on Octo­ after the operational deployments had ber 9, 1973, Qadhafi broadened the war powers report was submitted for each of these incidents. Of course, a c?mmenced but hours before military ac­ s~ope of his interest in expropriating the tion occurred. This satisfied the resolu­ rights of others and asserted his claim different situation might be presented if U.S. forces withdrew from an area and tion's requirement that consultation to ownership of the Gulf of Sidra. The occur "before" the "introduction" of United States vigorously protested that subsequently returned for the purpose of undertaking further military action. troops into hostilities or a situation of assertion on February 11, 1974, and in imminent hostilities. Congressional lead­ the years since then, we have exercised As a practical matter, however, this ers had ample opportunity to convey our rights in that area on numerous question seems academic. In the case of occasions. their views to the President before any the March incident in the Gulf of Sidra, irrevocable actions were taken (in fact, The War Powers Resolution was not ~or example, regardless of the applicabil­ no one who was consulted objected to intended to require consultation before ity of the War Powers Resolution, the the actions undertaken). The President conducting maneuvers in international Administration provided Congress with took a se~ous risk in conducting these waters or airspace in the context of this all the information it needed to review co~sultat10ns. The ~ress observed legis­ global freedom of navigation program. the_ incident. As soon as hostile Libyan lative leaders entering the White House We are aware of no previous suggestion actions occurred, the Administration for the consultations, and speculation that the resolution would require consul­ took steps to ensure that Congress was about possible military action ensued. tation in such situations. !nformed of the situation and was kept The press also learned immediately This question was carefully consid­ informed throughout the remainder of after the consultations that the Presi­ ered in connection with the Sidra exer­ the exercise. In particular, several calls dent was to make an address later that cise in March, and the decision was were made to congressional leaders to evening, and this led to rumors of immi­ made that the conduct of those opera­ inform them of the events; extensive nent military action that could have tions did not place U.S. forces into briefings were conducted for the benefit jeopardized the success of the operation. hostilities or into a situation in which of all interested members, at which ex-

3 The consultations in this case were It is also important to note, in this Conclusion consistent with the provisions of the regard, that the President is not simply War Powers Resolution. They were also acting alone, under his inherent con­ It seems fair to say, in conclusion, that consistent with and, in many respects, stitutional authority, when taking the it is not clear how the War Powers exceeded in scope and depth the consul­ types of actions we are discussing today. Resolution, which was originally designed to provide an appropriate role tations conducted on previous occasions. The Congress has, over the years, For example, President Ford's meeting learned of, considered, and effectively for the Congress with respect to U.S. with congressional leaders to discuss the endorsed in principle the use of U.S. involvement in hostilities with other states, should apply to the use of U.S. Mayaguez operation occurred at a point forces for a variety of purposes through in time much closer to the onset of mili­ its adoption of laws and other actions. forces in other kinds of situations. Some tary action than was the case here. Most significantly, Congress has author­ such situations-the deployment of anti­ President Carter, as I noted earlier, did ized and appropriated money for the terrorist units-would seem to fall com­ not consult at all prior to the Tehran creation of forces specifically designed pletely outside the scope of the rescue mission. for antiterrorist tasks. resolution. Other situations-the conduct Where a military action constitutes For example, Section 1453 of the of peaceful, lawful exercises which the introduction of U.S. forces into 1986 Department of Defense Authoriza­ result in a hostile response-do not re­ actual or imminent hostilities for the tion Act specifically states that it is the quire consultations but, some might purpose of the consultation requirement duty of the government to safeguard the argue, may, in special situations, require of section 3 of the resolution, the action safety and security of U.S. citizens a report. Still other cases-the use of also triggers the reporting requirement against a rapidly increasing terrorist U.S. forces in a legitimate, defensive of section 4. In the case of the April 14 threat and that U.S. special operations strike against another state-can clearly operation, the President submitted a full forces provide the immediate and pri­ be said to fall within both the consulta­ report consistent with the War Powers mary capability to respond to such ter­ tion and the reporting provisions but Resolution. As the President noted in rorism, and the Congress has with the form of consultation neces­ his report, the actions taken were pur­ appropriated funds for the specific pur­ sarily varying with the particular suant to his authority under the Consti­ pose of improving U.S. capabilities to circumstances. tution, including his authority as carry out such operations. Likewise, the A consideration of the application of Commander in Chief. That authority is Congress has appropriated considerable the War Powers Resolution to situations most compelling in a situation such as sums to create the naval and air forces such as these does more than raise this, where the use of force is essential that are needed to respond to and deter difficult and inevitably controversial is­ to deter an immediate and substantial state-sponsored terrorist attacks in the sues of interpretation. On a broader threat to the lives of Americans. manner that was done on April 14 and level, it also highlights some of the sig­ nificant negative aspects of the War In recent weeks, the question has to carry out the exercises necessary to been raised publicly as to the Presi­ maintain such capabilities and to assert Powers Resolution, whose effects on the dent's right to take military action and protect our rights on the high seas. Congress are perhaps even more pro­ without the express approval of Con­ In this sense, Congress has participated found than on the Executive. The need gress. This is a question that has been in the creation and maintenance of the that some Members of Congress feel to addressed by executive branch officials forces whose function, at least in part, is defend the resolution's viability, even in on many occasions over the years, and to defend Americans from terrorism situations well beyond those contem­ their statements are well known to this through the measured use of force. plated at the time of its adoption, causes committee. Without going into the spe­ The President has openly discussed Congress to shift its concern, delibera­ cifics of those statements, it is clear that and explained the need for and pro­ tions, and political leverage away from the limited actions undertaken by Presi­ priety of these uses of force, which he evaluating the merits of military actions dent Reagan in response to attacks on has correctly assumed are widely sup­ to testing their legality and to focus on the United States and its citizens fall ported by Congress and the American formal and institutional issues rather well within the President's authority people. All of the actions undertaken than on the substance of our policies.. under the Constitution. As noted were clearly signaled well in advance Our history amply demonstrates that earlier, the War Powers Resolution does and, therefore, posed no threat to the Congress has adequate means, through not confer power on the President, but role of Congress under the Constitution the budgetary process and otherwise, to it clearly recognizes that the President in military and foreign affairs. provide an effective check on presiden­ has independent constitutional authority tial power to employ military force. But to take appropriate military action. the War Powers Resolution often un­ wisely diverts our leaders from issues of policy to issues of law. •

Bureau of Public Affairs Postage and Fees Paid United States Department of State Department of State Washington, D.C. 20520 STA-501

MAX G~FEN 83404 Official Business SPECIAL ASS!STA~T TJ PRESI~ENT OFC Of PURLTC LIAIS1M ...R!t-196~ EKFC Q~C BLOG sqn ~or;oo If address is incorrect WASHfN ,,f nt please indicate change. Do not cover or destroy this address label. Mail "' change of address to: PA/OAP. Rm. 5815A MONDAY MORNING,_ 2 JUNE 1986 matJon. But Admiral Turner Insisted NEW YORK TI.MES 2 June 1986 Pg.15 that the press then had to accept the risks of prosecution. In 1982, the Administration made Use ofDisclosures public ·aerial reconnaissance photo­ graphs that Intelligence officials said proved Nicaragua, with Soviet and Cuban aid, was assembling the largest Administration Often Unveils Secrets, military force In Central America and was supplying Salvadoran guerrillas. At Risk to Security, for Sake of Policy At the time, a senior Administration of­ ficial said: "It's a no-win situation. lit By LESLIE H. GELB The disclosures also Include an Inci­ we go public with the Information, we ~Ill ID 'Ille Hew Yori! 1llllel dent last year In which the Central In­ may lose our ability to continue.colfect­ WASHINGTON, June 1-The Rea­ telligence Agency offered the press de­ lng In the field. If we don't, we may lose gan Administration has been following tailed information provided by one of our chance to build public support. for a pattern of disclosing highly classified the highest-ranking Soviet defectors of the policy." · Information to support Its foreign poli­ recent times. As It turned out, according to offi­ cies, even though a number of Adminis­ cials, the Administration neither lost tration officials say these disclosures Testimony at Spy Trial Its Intelligence access nor convinced have endangered intelli­ many of the extent of the military gence sources and meth- Last week the disclosures entailed a Federal prosecutor, for the first time threat.· But the photographs might have News ods. This fits the well-es- been useful to Soviet intelligence. Analysls tablished practice of its using information SUPP.lied by the predecessors, with two im­ United States intelligence community, In 1983, after the Soviet Union shot portant variations: In the speaking in a spy trial of 'the general down a Korean airliner, killing 269 peo­ memory of a number of past and American capability to "exploit," ple aboard, Secretary Shultz revealed present officials, the Reagan team "process," and "analyze" Soviet mes­ that American ·listening posts had In­ does it more often. And this AdminlS­ sages. tercepted the radio conversations be­ tration has been more aggressive in In each instance, according to Ad­ tween the Soviet pilot and his control-. threatening the news media with prose­ ministration officials, Intelligence offi­ lers. cution for conveying similar intelli­ cers IUld others have argued against The disclosure may have failed to gence Information to the American disclosure on the ground that adver­ prove his point that. the Soviets knew people. saries, knowing they were being seen the plane was not an Intelligence air­ This has set off a struggle between and heard, could take steps to block craft and, as far as many intelligence press and government over what Intel­ these processes in the fUture. officers were concerned, told Moscow ligence data should be made public and To some Administration officials and that the United States could intercept who should decide. William J. Casey, others, these authorized dlslosures important Soviet military communica­ the Director of Central Intelligence, have been more damaging to intelli­ tions. once again highlighted those issues gence collection than the unauthorized with more threats to the press last press disclosures of recent weeks that The Case of the Defector week concerning coverage of the trial have so exercised Administration lead­ In late 1985, the Central Intelligence of Ronald W. Pelton, a former official ers. These include press accounts of the Agency made a determined effort to of the Natiomtl Security Agency who is details of Libyan messages after Presi­ tell reporters details about their inter­ accused of spying for the Soviet Union. dent Reagan had talked publicly about rogation of Vitaly S. Yurchenko, a key By the week's end the White House had the substance of those messages re­ Soviet intelligence agent who appar­ moved to soften the threat somewhat. garding terrorist activities in Berlin. ently defected and then slipped out of Today, In separate television inter­ Of the greatest concern to the Admin­ American control and returned to Mos­ views, Secretary of State George P. istration were reports that an Amer­ cow. The CJ.A. told its side, as some of Shultz and Defense Secretary Caspar ican spy had told Moscow that United Its officials acknowledged at the time, W. Weinberger, while supporting the States submarines were involved in lis­ to show that he had been a valuable in­ view that journalists who break the Jaw tening to Soviet communications, infor­ former, contrary to White House asser­ on disclosing Intelligence ioecrets mation presumably already in Mos­ tions of his uselessness. should be prosecuted, called for volun­ cow's possession. A number of Administration officials tary restraints and appeals to journal­ at the time maintained that these ists' sense of responsibility. When to Go Public? C.l.A. disclosures tipped off Moscow to While the Administration's thrust Nonetheless, the weight of opinion what Mr. Yurchenko had divulged, in has been to bear down on the press, expressed by officials of past and the same way that Mr. Casey is seeking with frequent warnings in recent present Presidential administrations is to prevent the press from telling Mos­ weeks, its own role and reasons in di­ that the one in power has the right to cow and the American public about Mr. vulging such information have re­ decide when Intelligence must be com­ Peltcn's alleged disclosures. ceived scant attention. promised to advance policy. Earlier this year, Mr. Reagan pub­ As Representative Les Aspin, chair­ "l 've always been of the view that an licly spoke of the Administration's man of the House Armed Services administration has to be able to make knowledge of messages sent to and Committee, put it: "Every administra­ the judgment when to disclose, even If from Tripoli and its diplomatic posts. tion wants to have it both- ways - to intelligence people are opposed," said He said these proved Libyan involve­ keep its secrets, and to reveal them McGeorge Bundy, President Ken­ ment in the terrorist attack April 5 whenever doing so is useful for their nedy's national security adviser. He re­ against a discotMque in West Berlin, in politics and policies." The Wisconsin called Kennedy's decision to reveal which two people were killed and 230 Democrat, a former Intelligence Com­ satellite photographs of Soviet mjsslles others wounded. mi tt~ member, added that in his judg­ in Cuba In 1963 as a legitimate exercise Several intelligence officials thought mer.t a number of Administration dis­ of this right. · the disclosure would allow the Libyans closures have been "more damaging to Stansfield Turner, a retired admiral to prevent similar interception in the our gaining necessary information who was. President Cartirr's intelli­ future. than the press disclosures the Adminis­ gence chief, went further, saying that As to the decision to make disclo­ tration is complaining about." "we always have. to make compro­ sures at the Pelton trial, Edward P. Administration disclosures Include mises" ·In balancing intelligence Djerijian, a White House spokesman, revealing the most sensitive communi­ sources With J>Olicy consitlerations. said last week that it was "made by ap. cations interceptions in the recent case But, he said, it ·it ."impossible to make propriate Government authorities of Libya and the it>viet Union oft a num­ this judgment fi"Qltl outside the Govern- after careful consideration of the de­ ber of occasions, as well as releasing ment.'' · " . 4 mands of trial and the potential harm satellite photographs regarding Nica­ Both maintained .that the press had that release of this selected data may ragua in 1982. the right to publish unauthorized infor- cause the national security." 7 MONDAY MORNING, 2 JUNE 1986 WASHINGTON POST 2 June 1986 Pg. 2 WEINBERGER ••• from Pg.l chev. . Mr. Weinberger said he had not A Marker for the Summit read a new Soviet proposal reported­ ly made at Geneva, Swttzerland, two LOU CANNON ___ _ days after the president's decision DUARTE ••• from Pg. 6 on SALT was disclosed. Mr. Reagan. arms to incorporate into the dem­ ttorney General John P. Mitchell, returning from a Camp David week­ ocratic process-to put down their in the heyday of the Nixon end, brushed off reporters' questions arms and end this war that has Apresidency, once memorably on the subject. caused our country so much pain ;admonished critics of that Mr. Welnberger's position on the and blood." administration's civil rights program to ABM treaty seemed to be In response 1"watch what we do, not what we say." Unionized workers and farmers to the Geneva offer, which reported· It was good advice then, if have begun turning out this year for I ly said the Soviet side would start i double-edged, and it is even better reducing strategic nuclear forces If street demonstrations protesting ·advice now in assessing President the United States agreed to stick Duarte's economic1 austerity pro­ With the ABM agreement for 15 or gam and calling for dialogue with Reagan's decision to renounce the 20years. the guerrillas. SALT II arms control agreement while "I'd certainly oppose anything In January, Duarte implemented continuing in at least temporary that blocked or In any way prevent­ compliance with its ceilings on nuclear ed our development" of an SDI sys­ an unpopular economic austerity plan supported by the United States missile launchers. tem, the defense secretary said. For ideologues on both sides, there that included currency devaluation, He said three times that he was : was a curious cleansing quality in against anything that limited not on­ limits on imports and price in­ : Reagan's statement that future U.S. ly research but eventual deployment creases. A recent government poll decisions would be based on the Soviet of such a space-based missile de­ showed that only 24 percent of fense system. popularly known as military threat rather than on the "star wars." Res::arch on SDI would those surveyed supported Duarte's requirements of SALT II. It satisfied be possible under the 1972 ABM Christian Democratic administra­ conservatives who had waited 5112 years treaty. but deployment would nqt be tion, a percentage larger than that for Reagan to make good on his 1980 permitted. favoring any other political party campaign promise to renounce the Mr. Weinberger said Soviet re· but far below the 40 percent who "fatally flawed" treaty negotiated by searchers have been working on a said they either did not care or did comparable program for 17 years. President . And it ratified not care to answer. longstanding liberal fears that Reagan The language of the ABM treaty Duarte outlined the achieve­ allows either side to abrogate It with would prove a militaristic president who ments of his first two years in of­ spurned negotiations with the Soviets. six months' notice. Neither Mr. fice, including construction of hous­ Weinberger nor Mr. Shultz men­ · Both sides seem more influenced by tioned that. but lx>th said the Soviets ing and bridges and increases in jReagan's words than his deeds, while have violated the ai;(reement by public and private employment. But being selective about the words they building a major Inward-looking ra­ economists say about half of the !,quote. In the same measured statement dar complex at Krasnoyarsk, Sibe­ work force is still unemployed or la­ Hn which he ostensibly bid farewell to rta, apparently designed for missile boring in marginal jobs. defense. -SALT II, Reagan said he would not Right-wing opposition legislators ~deploy more strategic nuclear delivery Asked on NBC-TV's "Meet the boycotted the speech. Duarte, irked Press" about the Soviet suggestion vehicles or ballistic missiles than the that Mr. Reagan's decision on SALT by this attempt to embarrass him, ·Soviets. He also called upon Moscow to could endanger arrangements for lashed back, comparing the absent join in establishing an interim arms another summit meeting, Mr. Shultz legislators to leftist guerrillas control framework of "truly mutual said Mr. Reagan was ready to have throughout Latin America. restraint." such a meeting and to prepare the [While Duarte spoke, 60 members While Reagan insisted he was agenda Involved. of a human rights group occupied ~dismantling two older Poseidon But like Mr. Weinberger. he was the capital's cathedral to demand the firm in supporting the president's submarines for budgetary reasons, the decision to halt U.S. adherence to release of nine human rights activ­ effect of his action kept the United the treaty, which Washington has ists arrested last month, United ·States within the limits of SALT II as complied With until now despite the Press International reported.] the new Trident submarine Nevada Senate's refusal to ratify the agree­ began sea trials last week. Pentagon ment. Mr. Weinberger, Interviewed on conservatives had wanted Reagan to Mr. Shultz said the Soviets had CBS-TV's "Face the Nation," said the dry-dock the Poseidons, rather than violated SALT II In two ways. by de­ United States must decide what scrap them, pushing the United States ploying new mobile missiles and by weapons to add "for our own nation­ encrypting the telemetry that sends al security . . . not things that stay over the SALT II ceiling of 1,200 back results of Soviet missile tests. Within the artillclal limits of a flawed nuclear delivery systems. In changing policy, the president and expired treaty." Instead, the United States will ts "shifting gears" away from an out­ The United States Is scrapping remain within SALT II limits until the dated agreement, he said. The treaty two missile submarines and thus re­ !31st B52 bomber equipped with limits the number of strategic mis­ maining within SALT limits, Mr. air-launched cruise missiles is put into siles but not the number of war­ Weinberger said, but only because service later this year, and could fall heads, he said, so the Soviets have that Is "cost-effective." back under the limit a few months later deployed 70 or more new SS-25 "We certainly will" go over the weapons With multiple warheads. treaty's limits later by deploying if additional Poseidon subs are retired. That "basically doubles" the previous more air-launched cruise missiles All in all, the Soviets have little number of warheads. he added. aboard long-range lx>mbers, he said. SUMMIT •.• Pq. 16 8

\. 13 '/ 5 TA lo/)..$/ :;:? A t~//llt::'WI rz_ PASSOVER AND TERROR 'S;;.. t2 Mf/µ '?="/ t>~ 7 ~~ "Y o F °?'4 <;;-s ov J5 ¢ .... >4f1~1c_, ;i_.f,1?6~ -,-,_, ,::_ A.~ .As 7 s;-/!A .G L c:;. ,Y ft'A C f7 ~ t/>;:_. f.A/ AC ,;L// V ~ le?P, !J. C ,

Mah nishtana ha-Pesach hazeh mikol ha-psachim? Why is this Passover different from others?

On t-his Passover we endured the reverberations of the 11th Plague: the slaughter of the innocent.

Senator Mark Hatfield of Oregon has held the United States responsible for the plague of "hospital beds filled with bloodied children .••. Streets strewn with the rubble of bombed apartment buildings .••• The death of Colonel Qadaffi's infant daughter."

Any sensitive person who saw the televised portrayals of broken bodies pulled from the rubble or the bandaged faces of children in hospital beds couldn't help but cringe in discomfort at the high cost exacted for "the sober satisfaction of seeing justice done" -- to quote a N.Y. Times editorial.

Perhaps the American public will now exhibit a deeper understanding of the Israeli public who have felt this painful disc·omfort time and time again, whenever telecast scenes of devastation depicted the savage effects of Israel's use of her air power over Lebanon. Decent people recoil at the thought of inflicting so much injury and death on ""innocent bystanders.i

Passover and its rituals are appropriately instructive. Passover received its name from the Divine command to the children of Israel to smear blood of the paschal lamb on the doorposts of their houses so that the Angel of Death could recognize and pass over Jewish homes. ' A sage whose words are recorded in the Talmud observed that the Angel of Death was surely intelligent enough to recognize a Jewish household. The conclusion was

that once the sword is unleashed in the land, it can no longer distinguish between the wicked and the go~d. fl f 'P-:i. • - T -"' Therein lies the ambiguity of riot, terror and war. I\ PASSOVER & TERROR - Pg. 2

Participants in the traditional Seder spilled a drop of wine at the recitation

of each of the ten plagues to signify that our cup of celebration is diminished by

our awareness of the cost in suffering inflicted on other . human beings, enemies, but

all the children of God, and surely innocent bystanders.

Parts of the Hallel, the Psalms of Praise, which we recite on all festivals, are omitted on the last six days of Passover in recognition of the truth in a legend which

assigns to God these words at the drowning of the Egyptians in the Red Sea: "At a

time when My children are drowning in the sea, it is not appropriate to sing the full measure of song."

Our Rabbis taught us: "When your enemy falls, do not rejoice."

These rituals reflect the Jew's ambivalence about the use of power, and are designed

to sensitize us to the suffering we inflict on others by our efforts to survive.

The Jewish ambivalence toward the use of power is reflected in the Haf tarah we

select for Chanukah, a festival which celebrates the military victory of the Maccabees~,

1:he words of Zechariah wft+eh conclude, "Not by power, not by might, but by My spirit,

saith the Lord of Hosts." ~,.s America's ambivalence toward the use of power reflected in the letters to the editor f\ which appeared in many newspapers, and in the demonstrations and counterdemonstrations ,... ,s~ o~ in the streets of many cities, some approving, ~ disapproving~our bombing of Tripoli.

Members of Congress, columnists, and church groups reacted predictably. The National

Council of Churches characterized our bombing of Libya as "morally questionable and

fundamentally imprudent," critizing "the endless chain of unrequited violence that

has plagued the Middle East."

"We should have presented our case before the World Court and the United Nations,"

said the leader of the Presbyterian Church.

"We have failed to address the causes of terrorism," said the presiding bishop

of the Episcopal Church.

These refrains reflect both the nobility and the naievete of distinguished spiritual ..... leaders. The refrains are also familiar. Some people remain silent in the aftermath PASSOVER & TERROR - Pg. 3

of terrorist outrage, finding their tongue to condemn only after the victim strikes back.

In none of the public criticism could one find any expression of compassion for

the victims of terror who were also innocent bystanders. There was no ambivalence

about the use of power; there was instead a surrender to its use by terrorists.

One-sided expressions, when reaction5to terrorist acts, receive more condemnation

than t~ terrorism itself, encourage more violence, kidnapping, and even more assassina-

tion. Even our language has been terrorized, MTrl 1n the polemic the distinction between . - / victim and hijacker becomes blurred, terrorists become guerillas, murder squads become ~~o freedom fighters, car bombing becomes not murder but political expression. ~ A bomb in a shopping plaza, a bus, a movie house, an office building, is aimed not at a victim but at the public. It is spectacular and ruthless killing, designed

to seize the imagination of a mass audience. Human beings are reduced to being props

in the theatre. The purpose of terrorism is to call attention to a cause, using the

victim as a means of buying space in the newspaper or time on television and radio.

Newspapers have enlarged the terrorist stage. Journalists rush to interview those who practice the art. Television has increased the visibility of violence, and may

have done more for terrorism than any other single factor.

Many years ago a Chinese theorist said: Kill one, frighten ten thousand. In the

age of terrorism, the axiom should be: Kill one, frighten ten million.

The difference between terrorism and ordinary crime is that the criminal usually

tries to mask his deed; the terrorist gloats in it, and rushes to proclaim his responsi-

bility for it, as did Qadaffi, when he applauded the death of twelve-year-old Natasha

Simpson, one o~ the sixteen people who was murdered in the murderous onslaught in

the airports of Rome and Vienna.

Why is terrorism so difficult to stop?

The isolationist syndrome. Most people aren't affected. The victims were in faraway

places. So long as hostage-taking and terror were directed toward Israel, it didn't

seem to matter to most people or even to most nations. Many of the earlier hijack~rs, PASSOVER & TERROR - Pg. 4 terrorists and assassins, whose murderous deeds were directed at Israel, including the perpetrators of the massacre of the Olympic athletes in Munich, and including the first hijackers of an El Al plane, were apprehended and even convicted, only to be abruptly released under the implied threat of more hijacking, as if to channel

u I • }~ a •1. the terrorist outrage toward a less bothersome target: Israel. - ·"' i I I 1 rt - 1• 11'' ~ > "''• • JI ::::;t _. ' ' .I C7 , The Stockholm Syndrome, also recognized as The Patty Hearst Syndrome.

A minister ·who himself was held hostage and finally released, becomes a spoke~man for the people who kidnapped him. A passenger on the ill-fated TWA flight 847 who seemed to exult in his imprisonment, emerg~ to praise his kidnappers for their kind- ness. Hijack victims feel such a sense of relief that they haven't been killed that upon release they are inclined to thank their abductors for their "humanity."

Hypocrisy. Nations that have themselves been victims of Qadaffi have also profited by doing business with him, and want to maintain their profitable business relation- ship, thus making economic boycott ineffectual.

We haven't tried to reach them by reason or by using diplomacy; we haven't turned to the United Nations.

The United Nations is ineffectual, as is the World Court, because the very nations that provide shelter and assistance to terror are members of those bodies.

We were excessively trigger happy, too quick to resort to force. An Israeli officer once told me, "We let one Katyusha through and say nothing. We take another Katyusha and even absorb the damage, and then another. This time there are fatalities. Eventually we say, 'Dayenu, enough.' We strike back, if only to reassure our people, and at least to put the terrorist on guard."

Ambassador Jeanne Kirkpatrick wrote of the Indian chief who controlled his temper by putting a pebble into a pouch whenever he was goaded to anger. When the pouch was full, he went to war.

Rhetorical Confusion. "We cannot agree on what terrorism is. One man's terrorist is another's man freedom fighter."

The early American revolutionaries never shot women and children. The founding PASSOVER & TERROR - Pg. 5

fathers of the American Republic threw tea and not civilians into the Ocean. Israel's

Irgun never advocated the destruction of Britain; they simply wanted to be free.~

~ The never bombed London, only hostile British soldiers in Palestine. The

Arab terrorists want to wipe out all of Israel, civilians and soldiers, young and

old alike.

"Desperate people can be driven to deeds of desperation" Syndrome. We must under-

stand motiv ,,JO"°\ ..._If If we provide a homeland for the Palestinians, we would put an end to their resorting

to terrorism.~ ~~pologists for terror forget that the closer we come to peace

in the Middle East, the more do acts of terror increase. Extremists in the Middle

East do not want a negotiated peace nor do they want territorial compromise. They

intensify acts of terror whenever they see the possibility of an agreement between

Israel and Jordan because they seek not compromise but the eradication of Israel,

and even of the more moderate Arab governments in the area.

The fallacy of the false comparison. One columnist stated on the air, "For me, killing is killing. A bomb dropped from the sky is as terrifying as bombs in a shopping

center. Violence is violence. There is no difference between President Reagan and

a terrorist; both throw bombs." Senator Hatfield suggests our behavior in Libya is

"a narrowing of the moral gulf that separates Colonel Qadaffi and the United States."

An elementary book on political science would reveal the distinction between force

used by a state and force used by an individual. In a democracy, force is like the

post office; it must be a monopoly of the state. In private hands, it's dangerous.

Senator Hatfield confuses power with violence. Violence is the misuse of power.

Terrorism is the violent use of power. If someone states in all seriousness that

the and the Palesatine Liberation Organization, that U.S.

Army and t~ Libyan agents, the policeman and the criminal are all in the same moral ~ \\ boat because they 9&dl use guns, then we should despair of the meaningful use of language.

This is not only moral obtuseness; it is an affront to human intelligence.

In this unredeemed world, power is a necessary evil. ~Machiavelli would deny PASSOVER & TERROR - Pg. 6

·+· ... •c ~., ~·,-1-y 1 S r • v it(io evil; ~ the naive would deny that ~ ~s~ssse~y. But power is the difference between Anatevka and Entebbe. Anatevka could give us nostalgia and a musical, but only Entebbe could rescue the fiddler on the roof. Power is neutral; it depends on its use. Power used viciously and violently as an end.. in itself can be overcome.. only by stronger power used judiciously and responsibly. Power is corruptin~ ;/rote Lord

Acton, "Wftat>-4.a lven more corrupting~'Spowerless~ess. It leads to capitulation . ..-

The moral posture of the -·pacifist is difficult to justify after World War II. Hitler might have been stopped when he p.ad first marched across the Rhine in breach of the

Treaty of Versailles, but we hesitated to use force. Qadaffi could surely have been stopped in 1969. The American Wheelus Air Force Base was the strongest power in Libya at the time. -

Senator Mark Hatfield warns that we may become as brutal as the terrorists, quoting

Nietzche, "whoever battles with monsters had better see that it does not turn him into a monster" -- a valid warning.

That is precisely why we are told to diminish our cup of wine when recalling the plagues inflicted on ancient Egypt: to remind ourselves that though we use power, we must not become monsters.

Jews who become monsters are to be condemned without exception. Jewish terrorists in Israel are imprisoned. In Arab lands, terrorists are heroes, their successful bvC exploits applauded.

Our ambivalence"' about the use of power is genuine, but nowhere in our tradition is there the suggestion that the children of Israel should have remained slaves in

Egypt so as to have reduced the possibility of inflicting harm upon the innocent children of the exploiting Egyptians.

To have spared the citizens of Berlin, should we have learned to live with Hitler?

Would it have been better to allow New York to be bombed rather than to bomb Dresden?

What is necessary in order to put an end to terror?

Don't try to understand the motives of terrorists. Terrorism sullies the hands of those who practice it, however righteous their cause may appear to be. Terrorism PASSOVER & TERROR - Pg. 7 is like piracy or genocide; it must be regarded as a crime against humanity. A nation that provides haven for terrorists should be quarantined. This means an outrage com- mitted against any one nation must be seen as a threat to all nations. Hijacking of aircraft, no matter by whom or for whom or which airport, or to whom directed, threatens to rip away the thin fabric that covers our civilization.

After the burning of Germany's synagogues in 1938, Chaim Weizmann, who later became the first president of Israel, warned the British,_"Because you did nothing to prevent the burning of the synagogues in Berlin, someday you will be unable to prevent the bombing of Westminster Abbey and the churches of England." And so it came about.

And little was done to prevent the first hijacking of the El Al plane, or to punish the perpetrators. Suddenly there was Tehran, and now the free world is held hostage.

It has been the fate or the role of the Jew to be the litmus test or the cutting edge of history. This has always been our role. . J,f"J: )' If the world assumes the posture of ltOtrie helplessness at the continued outrages perpetrated by the Palestine Liberation Organization, Abu Nidal, Abu Ahass, Qadaffi,

Assad and Arafat, civilization will be destroyed, as surely as civilization was destroyed in the days of Noah when the world was filled with evil, the evil of complacency.

I applaud the act of our President who said, "Enough is enough. We have found the smoking gun. They have mistaken our desire for peace for placidity." The world will be destroyed not by people who want to take action against terrorists, but by those who, out of a misguided sense of noble decency, deride those who act against the terror that comes by night or by day, with bombs labeled "To whom it may concern." Words will not deter the terrorist.

When will it all end? Must innocent children always be victim? It will end when the Arabs learn to love their children more than they hate the children of the Jews or of the Americans. If our children cannot grow up saf~ly, neither can theirs.

Who is more precious? The unfortunate bandaged infant lying in a hospital bed in Tripoli, or that little infant who was sucked out of a TWA airplane, falling two hov.Y1fy1~ ~ miles to a lwri;iele 1 smafhing death? Both infant~ are equally sacred. But who caused • PASSOVER & TERROR - Pg . 8

those deaths? President Reagan did not cause the death of the British hostage who

was hanged in Lebanon; his kidnappers caused that death. It is the confusion of language,

not the President's decision, that narrowed the gap between the President and the

mad bombers of Libya.

When Qadaff i comes to love his child more than he hates the child who flew on that

American plane, then his other children will be safe, and not until then. Until then,

there is no alternative but to make terrorists p.ay the price in suffering as-· much : as

they have made us suffer.

As once said, "When peace comes with the Arabs, we shall forgive every­

thing, except for one thing. We shall not forgive the Arabs for forcing us to make

victims of their children."

On Passover our cup is diminished in sympathy and in horror. But we are given

no alternative.

Our Rabbis asked: When will nation desist from lifting up sword against nation?

When will the time come when each person may dwell in peace beneath his vine and

fig tree?

Rabbi Yochanan ben Zakkai responded:"When the Messiah comes, Israel will live

in peace."

But Rabbi Akiba, who joined Bar Kochba in resorting to force, would answer: "When

Israel lives in peace, the Messiah will come."

May we have reason to recite the full Hallel in days to come, and in peaceful

habitation. ------. Selected Documents Internationar:rerrorism No. 24

~\6)11 United States Department of State . Bureau of Public Affairs .' "·I' Washington, D. C.

Following are texts of an address by woman were killed, and 230 others were vented. With the help of French authori­ President Reagan, statements and an wounded, among them some 50 Ameri­ ties, we recently aborted one such address by Ambassador Robert B. Oak­ can military personnel. attack-a planned massacre, using ley, Acting Ambassador at Large for This monstrous brutality is but the grenades and small arms, of civilians Counter-Terrorism, and a statement by latest act in Colonel Qadhafi's reign of waiting in line for visas at an American Ambassador Parker W. Borg. Deputy. terror. The evidence is now conclusive Embassy. Office of the Ambassador at Large for that the terrorist bombing of LaBelle Colonel Qadhafi is not only an Counter-Terrorism. discotheque was planned and executed enemy of the United States. His record under the direct orders of the Libyan of subversion and aggression against the regime. On March 25, more than a week neighboring states in Africa is well PRESIDENT REAGAN before the attack, orders were sent from documented and well known. He has or­ APRIL 14, 1986 Tripoli to the Libyan People's Bureau in dered the murder of fellow Libyans in East Berlin to conduct a terrorist attack countless countries. He has sanctioned Address to the nation, against Americans to cause maximum acts of terror in Africa, Europe, and the the White House, and indiscriminate casualties. Libya's Middle East, as well as the Western Washington, D. C. agents then planted the bomb. On April Hemisphere. 4, the People's Bureau alerted Tripoli Today, we have done what we had My fellow Americans, at 7:00 this even­ that the attack would be carried out the to do. If necessary, we shall do it again. ing eastern time, air and naval forces of following morning. The next day, they It gives me no pleasure to say that, and the United States launched a series of re.ported back to Tripoli on the great I wish it were otherwise. strikes against the headquarters, ter­ success of their mission. Before Qadhafi seized power in 1969, rorist facilities, and military assets that the people of Libya had been friends of support Muammar Qadhafi's subversive the United States. And I'm sure that activities. The attacks were concen­ today most Libyans are ashamed and trated and carefully targeted to When our citizens are abused disgusted that this man has made their minimize casualties among the Libyan country a synonym for barbarism people, with whom we have no quarrel. or attacked anywhere in the around the world. The Libyan people From initial reports, our forces have world on the direct orders of are decent people caught in the grip of succeeded in their mission. Several a hostile regime, we will a tyrant. weeks ago in New Orleans, I warned respond . . . . Self-defense is not To our friends and allies in Europe Colonel Qadhafi we would hold his re­ only our right, it is our duty. who cooperated in today's mission, I gime accountable for any new terrorist would only say you have the permanent attacks launched against American gratitude of the American people. Euro­ citizens. More recently, I made it clear peans who remember history under­ we would respond as soon as we deter­ stand better than most that there is no mined conclusively who was responsible Our evidence is direct; it is precise; security, no safety in the appeasement for such attacks. it is irrefutable. We have solid evidence of evil. It must be the core of Western On April 5 in West Berlin, a about other attacks Qadhafi has planned policy that there be no sanctuary for terrorist bomb exploded in a nightclub against the U.S. installations and diplo­ terror, and to sustain such a policy, free frequented by American servicemen. mats and even American tourists. men and free nations must unite and Sgt. Kenneth Ford and a young Turkish Thanks to close cooperation with our work together. friends, some of these have been pre- Sometimes it is said that by impos­ AMBASSADOR OAKLEY of incidents rising from 109 in 1983 to ing sanctions against Colonel Qadhafi or FEBRUARY 28, 1986 378 in 1985. Within that category, there by striking at his terrorist installations, are a variety of factors and actors. The we only magnify the man's impor­ Excerpts from a statement before the Israeli-Palestinian dispute is only one tance-that the proper way to deal with Subcommittee on Civil and Constitu­ component, and it" includes terrorism him is to ignore him. I do not agree. tional Rights of the House Judiciary conducted by radical Palestinian groups Long before I came into this office, Committee, Washington, D.C. and their state supporters trying to dis­ Colonel Qadhafi had engaged in acts of rupt the peace process, plus one Pales­ international terror-acts that put him Thank you for the opportunity to appear tinian group against another. There is outside the company of civilized men. today with my colleagues from the also the terrorism inspired by For years, however, he suffered no eco­ Treasury Department and the FBI Khomeini's brand of politico-religious nomic or political or military sanction, [Federal Bureau of Investigation] to dis­ fanaticism and the Iran- as well and the atrocities mounted in number, cuss the threat of terrorism. as Qadhafi's assassination campaign as did the innocent dead and wounded. Our presence here together illus­ against Libyan dissidents. And for us to ignore by inaction the trates the partnership within the U.S. Some terrorist acts were attempts slaughter of American civilians and Government, the Congress, and the by terrorists to obtain the release of American soldiers, whether in night­ American people in this combined effort their colleagues or relatives arrested for clubs or airline terminals, is simply not to counter the modern day scourge of previous actions. The one consistent de­ in the American tradition. When our terrorism. Obviously, there has to be a mand of the captors of the American citizens are abused or attacked any­ certain amount of "specialization" in hostages in Lebanon is the release of where in the world on the direct orders this effort, and the FBI is the primary the 17 Iranian-inspired terrorists con­ of a hostile regime, we will respond so agency on dealing with the terrorist victed in Kuwait for the bloody terrorist long as I'm in this Oval Office. Self­ threats at home, and the State Depart­ attacks there in December 1984, which defense is not only our right, it is our ment is the lead agency in coordinating killed and wounded almost 100 people. duty. It is the purpose behind the mis­ the U.S. Government's antiterrorism ef­ Other terrorists, such as Abu Abbas sion undertaken tonight-a mission fully fort overseas. Treasury has an impor­ whose group hijacked the Achille consistent with Article 51 of the UN tant role in both. We work together, Lauro, were trying to make an anti- Charter. especially where the threat abroad has a U .S., anti-Israel political point as well We believe that this preemptive ac­ potential for trouble here at home. as obtain the release of captured tion against terrorist installations will Mr. Webster [FBI Director] is cover­ colleagues. not only diminish Colonel Qadhafi's ca­ ing the domestic situation, and I will The most deadly of the Middle East pacity to export terror, it will provide sketch out the growing problem of over­ terrorist attacks came from the Abu him with incentives and reasons to alter seas international terrorism which in Nida! group, which shifted the locus of his criminal behavior. I have no illusion 1985 all too frequently caught the televi­ its operations from Iraq to Syria in that tonight's action will ring down the sion screens and, thus, the eyes and 1983. In early 1985, Abu Nidal focused curtain on Qadhafi's reign of terror. But ears of Americans. This was partly be­ his attacks against Jordanian and main­ this mission, violent though it was, can cause terrorists singled out Americans stream Palestinian officials. Then, about bring closer a safer and more secure for death in three of the most dramatic the middle of the year, after Syria and world for decent men and women. We attacks-the prolonged TWA 847 hijack­ Jordan began high-level discussions, will persevere. ing in June, the Achille Lauro hijacking Libya became his main backer, and his This afternoon, we consulted with in October, and the November hijacking targets shifted. The hijacking of the the leaders of Congress regarding what of the Egyptian airliner in Malta. Five Egyptian airliner to Malta, in which we were about to do and why. Tonight, Americans were among the 19 killed in women passengers-American and I salute the skill and professionalism of the December massacres at the Rome Israeli-were singled out for killing for the men and women of our armed forces and Vienna airports by the Abu Nida! the first time, and the Rome and Vienna who carried out this mission. It's an group, supported by Libya. We also ex­ airport attacks were the major opera­ honor to be your Commander in Chief. perienced the continuing anguish of the tions of the Abu Nidal organization after We Americans are slow to anger. American hostages in Lebanon and their it began to receive strong Libyan We always seek peaceful avenues before courageous families in this country. support. resorting to the use of force-and we A preliminary review of statistics West European groups also were ac­ did. We tried quiet diplomacy, public shows that in 1985 there were more tive. The Red Army Faction attacked condemnation, economic sanctions, and than 800 incidents of international ter­ American and NATO-related installa­ demonstrations of military force. None rorism. There were 2,223 casualties, of tions in Germany, causing several succeeded. Despite our repeated warn­ which 23 of the killed and 139 of the in­ American deaths, and their counterparts ings, Qadhafi continued his reckless jured were Americans. Over the past 2 in France and Belgium also carried out policy of intimidation, his relentless pur­ years, international terrorism incidents attacks in these countries. In Italy, just suit of terror. He counted on America to have risen sharply (60%) from the yearly this month, the Red Brigades revived be passive. He counted wrong. average of about 500 incidents for the after the Italians had dealt major set­ I warned that there should be no 1978-83 period. backs to the group. In Spain, Basque place on earth where terrorists can rest separatists continued their campaign. and train and practice their deadly An American businessman was killed skills. I meant it. I said that we would The Terrorist Threat Abroad last year when a car bomb blew up in act with others, if possible, and alone, if· There are a number of diverse reasons Madrid, wounding over a dozen Spanish necessary, to ensure that terrorsts have and causes behind this disturbing trend. Civil Guards. no sanctuary anywhere. Tonight, we Middle East-related terrorism is a major have. cause for the increase, with the number

2 In Latin America, terrorist incidents Casualties Resulting From grew from 81 in 1984 to 132 in 1985, International Terrorist Killed many of them by groups with Cuban Attacks, 1981·85 1 and Nicaraguan support. Eighty-six of these incidents involved the United D Wounded States, including the killing of four Number of casualties marines and two businessmen in San ~ U.S. casualties Salvador. Narcoterrorism was an in­ 1,375 creasingly important problem. The list is by no means complete, but I cite these incidents to illustrate the variety of types of terrorists. There is a common point, however. The ter­ 1,250 rorists, regardless of what they or their backers may claim, are not some kind of romantic freedom fighters whose attacks should be excused away on the ground 1,125 that they are fighting for a political "just cause." What they are conducting · are criminal acts. In many cases they are deliberately trying to kill and wound as many innocent persons as possible, 1,000 including those without any direct con­ nection to their grievance.

International Terrorist 875 Threat to the U.S.? We're often asked: "Will overseas ter­ rorism move here?" It is difficult to give a categorical answer because there 750 are so many varieties of overseas ter­ rorists, but all concerned agencies of the U.S. Government take the threat very seriously-particularly State, Justice, 625 and Treasury. Most recently, Libya's Qadhafi gained additional headlines by more threats to bring terrorism to the United 500 States. While we consider this to be an exaggeration, it is not to be ignored. There has been a clear pattern of assas­ sination by Libyan agents ~broad of their own countrymen whom Qadhafi 375 did not like. The new Abu Nidal connec­ tion gives Libya a greater capability. Last year the FBI successfully foiled a plot by a group of Libyans in this coun­ try, and a member of Libya's mission to the United Nations was expelled be­ cause of his involvement in terrorist activities. Sikh terrorists, who were inactive until just 2 years ago, suddenly emerged in the United States and Canada as well as in India. The FBI thwarted potential Sikh operations here. The planting of bombs last year on two civilian airliner 1981 1982 1983 1984 1985 flights from Canada, however, hit close to home. The Air India tragedy was the 1 single most devastating event in 1985. 1985 figures are preliminary and may be subject to review and revision. The crash last June, which all evidence attributes to a bomb planted by Sikh terrorists, took 329 lives. The United States, Canada, the ,

3 and India are making a special effort to strike indiscriminately at American International Cooperation identify and preempt possible Sikh civilians. The security in some of the Dealing with terrorism overseas is com­ countries has not been what.it should terrorism. plicated by such economic factor~ and by There are other groups which have, have been. It is difficult to gauge differing political and foreign policy whether the situation at home would in the past, used American soil to air viewpoints even in the case of attack~ their grievances by action against change if stronger antiterrorism actions where the primary targets are Amen­ representatives of other countries, such were taken by the U.S. Government can. It should be kept in mind-and it is as Armenian terrorists who had been at­ overseas. We already have taken a num­ often overlooked by the media and tacking Turkish diplomats and the Jew­ ber of economic and political measures public-that the primary legal and politi­ ish Defense League, which has attacked against Qadhafi, for example, and the cal responsibility for countering ter­ Soviet diplomats. However, I wish to United States and Israel have long been rorism is the government of the country draw your attention to the fact that . his targets. The United States is also in which the terrorists may attack. there were no incidents actually camed target number one for a number of Our power is limited and constrained out in this country last year involving other groups in the Middle East and both legally and politically. For instance, connections with groups or governments Latin America. we can post military guards inside the abroad. While one cannot rule out that grounds of our embassies or other in­ I also wish to make a point about stronger actions against Qadhafi or stallations to help protect them, but we the differences between actual and other terrorists might increase further are dependent upon the host govern­ potential threat from groups of citizens their desire to do something against the ment for the outer defense, just as it is or permanent residents in this country United States at home, there are the the host government's responsibility to with strong family, ethnic, or religious basic obstacles mentioned above which protect travelers at the airports, busi­ ties abroad. While there have been a even the most irrational terrorist needs nesses, and other facilities within its small number of incidents involving in­ to consider. A desire for revenge does jurisdiction. dividuals from these groups, a combina­ not necessarily change the equation of We can mobilize our military forces tion of good law enforcement and the relative difficulties of terrorists get­ to strike terrorists, but our ability to pressure to cease and desist from the ting to and operating in the United use them in friendly or neutral foreign groups themselves has tended to pre­ States or our abilities to prevent them. territory is dependent upon the concur­ vent the continuation or repetition of In any event, this Administration rence of the host government. Applica­ terrorist activity. These groups are com­ has decided upon a still more vigorous tion of our legal power to pursue posed overwhelmingly of peace-lo~ing, campaign of counterterrorism and will terrorists abroad is also heavily in­ patriotic citizens. It would be a mistake not be deterred by the risk of retalia­ fluenced by host government attitudes. and grossly unfair for the American tion in this country. This is the main In this connection, tightly worded extra­ public, Congress, or the media to label conclusion of the report of the Vice dition treaties without political loopholes or imply ethnic communities in this President's Task Force on Combatting subject to exploitation by terrorists ar~ country are potential hotbeds of ter­ Terrorism, which President Reagan has very important. The U.S.-U.K. extradi­ rorism. approved. It recommends measures to tion treaty pending before the Senate There are a number of reasons why strengthen our antiterrorist capabilities for ratification is an exampie. terrorists from abroad are not more ac­ abroad and at home and a continuation We can, and do, work v.ith many of tive here. One, of course, is the excel­ of the policy of no concessions, no back­ the other countries to help improve lent work of the FBI, the Alcohol, ing down where terrorism is concerned. their defense against terrorism. But, in Tobacco and Fire Arms Bureau of Of course, nothing is certain in this the end, the decisions-or sometimes the Treasury, and other law enforcement business, and the terrorists have the ad­ lack of decisions-on how to deal with agencies. A second is the good work by vantage of surprise and shifting tactics. the situation are up to the other sover­ the CIA [Central Intelligence Agency] Thus, in considering our responses to a eign governments. And it is obviously in and other agencies in developing intelli­ given situation, we try to take all fac­ our interest to see them take as strong gence abroad on possible threats to this tors into account. But we cannot let our­ and effective action as possible, dealing country. Another factor is that the in­ selves be immobilized into inaction for with the threat abroad rather than hav­ tellectual, political, and psychological at­ fear our actions might prompt more ter­ ing it spread to the United States. In mosphere which seems to nurture some rorist attacks. To the contrary, the cost countering terrorism, our efforts to ob­ of the European ideological terrorists is of doing nothing is usually higher than tain international cooperation and pro­ not popular here. Yet another is the the costs of doing something. vide international assistance are all good work by INS [Immigration and Many European governments have important. Natu:r.alization Service], Customs, and long demurred at joining in action the State Department in keeping out against Libya or terrorist groups, re­ potential terrorists. jecting even seemingly simple controls Anti-Terrorism Assistance Program One result of this good work is that upon those entering or living in their An important part of our cooperation. it is easier for terrorists who want to countries, because they were concerned with other nations is the Anti-Terronsm strike at Americans to do so overseas. about losing Arab world business. Be­ Assistance (ATA) Program for civilian There are millions of us working and latedly, they have now come to realize law enforcement agencies of friendly for­ trave1ing abroad at any given time. The that they are not being spared and that eign governments. The program is ad­ buildings we work in, the cafes we eat terrorism is costing them dearly in fall­ ministered by the Department of State, in, and the airports we use are much ing tourism revenues, increased security and over 1,800 officials from 32 coun­ more accessible to terrorists who want costs, and apprehensive potential inves­ tries have participated during the nearly to strike symbolically at Uncle Sam or tors, as well as some loss of confidence 2 years of its operation. by their own public.

4 Federal, state, and local law enforce­ lecting, analyzing, and disseminating in­ reaffirmed by the Vice President's Task ment agencies and professional police as­ telligence on terrorist groups and Force on Combatting Terrorism, give sociations supply most of the instruction activities abroad. the State Department the (ead agency for the program, which provides a very • We have improved the security of responsibility for all incidents which valuable structure for developing a bet­ our embassies and consulates and take place outside U.S. terrority. Within ter working relationship with other heightened the security awareness of the State Department, the Bureau of countries facing the same threat. The our personnel; we have begun to cooper­ Diplomatic Security has the responsibil­ Departments of Justice and Treasury ate more closely with the private sector ity for providing protection to U.S. facil­ and the FAA [Federal Aviation Admin­ in sharing information on threats abroad ities and personnel overseas and the istration] have provided support for the and how to counter them; the Inman Office of the Ambassador at Large for program. A first phase, the Executive panel [Advisory Panel on Overseas Counter-Terrorism for the general meas­ Seminar, enables the United States and Security] provided an important outside ures of. cooperation with foreign govern­ the participating country to exchange review of what needed to be done to en­ ments to combat terrorism. ideas and insights. The second and third hance security and an additional boost The Interagency Group on Ter­ phases are used to identify specific for obtaining the necessary resources. rorism (IG/T), chaired by the Ambas­ needs and to provide actual training in • As noted by President Reagan, sador at Large, provides the forum for the United States of officials of the improved intelligence collection, better the major departments and agencies in­ recipient country. security, and closer international cooper­ volved in combating terrorism to meet In authorizing the AT A Program, ation helped us deter or preempt more regul;trly and share ideas, develop plans, the Congress established a requirement than 100 international terrorist actions and make recommendations on policy that participating countries be screened during the past year. This is in addition and programs. Permanent members in­ on the basis of their adherence to to the 23 potential domestic incidents clude representatives from the National acceptable standards of human and civil reported by Mr. Webster. Security Council; the Vice President's rights, and the Congress has the right • We have begun a new, more as­ office; the Justice Department (which to pass on prospective participants. The sertive phase in combating the state has the interagency lead role for domes­ Bureau of Human Rights and Humani­ supporters of terrorism, exemplified by tic terrorism); the FBI; the Depart­ tarian Affairs reviews and approves the President's decision to sever all eco­ ments of Defense (both the JCS [Joint each and every country before Congress nomic as well as political contacts with Chiefs of Staff) and the office of the is notified by the State Department of Libya, to persuade other governments Secretary), Treasury, and Energy; the the intention of that country's participa­ to join us, and to retain the option of Central Intelligence Agency; the FAA; tion in the AT A Program. Both the more forceful unilateral action should and the Drug Enforcement Administra­ Department of State and the Congress this cooperative campaign fail to stop tion. The IG/T provides a single point seek to screen out those countries which Qadhafi. where the various departments and have questionable human rights records. • We have worked hard and suc­ agencies can address questions and We also have the option, where U.S. in­ cessfully in international organizations make:. proposals. terests are compelling, to limit the ex­ such as the UN General Assembly and There are a number of specific work­ tent of training to those foreign agencies Security Council to establish that ter­ ing groups established under the or specific areas of operation which are rorism is a threat to all nations and auspices of the IG/T. They include one directly and immediately relevant to the should be considered as a crime. In the on rewards, one on improving technol­ safety and protection of U.S. citizens. specialized agencies, aviation and mari­ ogy such as equipment for detecting ex­ We make recognition and protection time specialists are drafting new secu­ plosives, and another on coordinating of human rights a dominant and perva­ rity standards. antiterrorist training by all agencies of sive theme in all instruction, and we • We have made effective use of re­ the executive branch, civilian and select training agencies-such as cent legislative tools, such as the re­ military. metropolitan police forces-which, by wards programs, the Crime Act of 1984, When a crisis occurs, task forces are word and example, demonstrate to the and the Foreign Assistance Act. We be­ set up in the principal agencies to look foreign participants that ethical stan­ lieve it is useful to have more legal tools after their specific concerns-at the dards, professionalism, and effective for the antiterrorism effort. We support, State Department to consider diplomatic counterterrorism must and can go hand for example, S. 1429, which recently issues, family liaison, and overall coordi­ in hand. passed the Senate, making it a federal nation; at the FAA to consider the tech­ crime to kill or conduct other terrorist nical aspects of a hijacking and maintain Actions Taken acts against Americans overseas. We liaison with U.S. carriers; at Defense to Over the Past 2 Years also, of course, strongly back passage of consider the possibility of using U.S. the U.S.-U.K. Supplemental Extradition troops in the area; etc. During a crisis The pace of our cooperative interna­ Treaty. where the use of American force might tional programs and other activities is • President Reagan has approved be considered, a special high-level coor­ quickening. the work of the task force directed by dinating group convenes almost immedi­ Vice President Bush which reviewed all • We have intensified our bilateral ately at the White House, where key relationships with friends around the aspects of our counterterrorist policies decisions are made. Thus, with the other world and begun discussing common and practices and recommended a num­ agencies, we at State have both a good counterterrorism efforts with countries ber of improvements. informal working relationship and a for­ where we have not had such close ties. mal structure from which flows many of the working relationships .... • We have dedicated more resources Coordination and given a still higher priority to col- To ensure maximum coordination for the U.S. response to terrorism, lead agen­ cies have been designated by the White House. These responsibilities, recently

5 Conclusion E~61pt from "Public Reporl of the unilaterally when necessary to pre­ We predict that, on the international Vice Prelident's Task Force on Com­ vent or respond to terrorist acts. side, the terrorism threat is likely to batting Terrori.Bm," February 1986 • The U.S. Government considers continue to grow and be with us for at the practice of terrorism by any per­ least another decade. There are too son or group a potential threat to its many causes, too many diverse actors, U.S. POLICY AND national security and will resist the and too many political, religious, social, RESPONSE TO TERRORISTS use of terrorism by all legal means and nationalistic sore spots in the world available. which generate individuals ready to be­ Since no country is immune to ter­ • States that practice terrorism come terrorists. Too many groups think rorism, it is imperative that govern· or actively support it wm not do 80 they can make a political impact favor­ ments have the appropriate policies, without consequence. If there is evi· able to their particular cause-magnified intelligence and flexible response op· dence that a state is mounting or in­ mightily by the media around the tions to deal effectively with terrorist tends to conduct an act of terrorism world-and there are governments acts. Trained personnel and programs against this country, the United which refuse to forgo the temptation of must be in place before, during and States will take measures to protect using terrorism as a cheap form of after each crisis, both to respond to its cl.thens, property and interests. warfare. We should not be discouraged the problem ar!d to answer inevitable • The U.S. Government will or panicked about it but, rather, keep criticism in the event of failure. make no concessions to terrorists. It our cool and determination. This will be Long-term policies to achieve these will not pay ransoms, release a long process; there are no magic solu­ objectives are costly, complicated and prisoners, change its policies or agree tions or remedies. As the terrorists in­ difficult, yet essential as a defense to other acts that might encourage crease their activities, however, we are against the importation of terrorism additional terrorism. At the same increasing ours and, indeed, trying hard­ from overseas. time, the United States will use er to get ahead of them on our own and every available resource to gain the with other governments. safe return of American citiums who Current Policy We can take comfort in the large are held hostage by terrorists. number of terrorist incidents preempted The U.S. position on terrorism is un­ • The United States will act in a abroad, at the low level of terrorism in equivocal: firm opposition to ter­ strong manner against terrorists this country. But the big increase in the rorism in all its forms and wherever without surrendering basic freedoms number and viciousness of international it takes place. Several National Secu­ or en

6 ing of U.S. citizens and interests, and pattern of attack during that period After careful deliberation, the Presi­ stronger state support, which caused focused upon mainline PLO [Palestine dent decided to take unilateral action the Reagan Administration to draw the Liberation Organization] and Jordanian against Libyan support for terrorism. line for Qadhafi and Libya's direct in­ officials and Jordanian Air Lines offices. He moved to terminate the remaining volvement in terrorism. Libya is not the There is still a connection with U.S.-Libyan commercial and financial re­ only state in the Middle East supporting Syria, but for the major activities since lations and called upon other countries and using terrorism: Syria and Iran re­ mid-1985-Rome, Vienna, and Malta-the to join us in sending Qadhafi and other main very much involved. But over the primary and more significant support governments the signal. The decision re­ past 6 months, Libya has become by far has been Libyan. Some of the terrorists quired still further economic sacrifices the most active, especially against involved in the Rome and Vienna at­ for the United States, which has already American and European travelers. If it tacks may have been "trained" in the given up a multibillion-dollar annual bus­ cannot be stopped, others can be ex­ Bekka Valley of Lebanon controlled by iness with Libya to make clear our pected to follow its lead. Syria. But it doesn't take much training stand against terrorism, but if we had Qadhafi's general support for ter­ to fire submachine guns and throw hand not taken the lead, no one else would rorism is not new. He long has used grenades against civilian passengers in a have done so. Moreover, the moral issue terrorism as one of the primary instru­ crowded airliner terminal. Even in this, was such that any administration in this ments of his foreign policy. He has Abu Nidal shows his cynicism and country would be bound to act. given support to a variety of groups cruelty. His group recruits young men, There are a number of reasons why around the world, from the IRA [Irish some of them still teenagers, for suicide other governments in Europe and else­ Republican Army] in northern Ireland attacks. They are the cannon fodder, where have been reluctant to act, both to the Moro National Liberation Front while Abu Nidal and his lieutenants re­ in earlier years when we previously in the Philippines. A more detailed main safely in the shadows. tried to exert pressure on Qadhafi to description of Libya's activities is in During the last half of 1985, we end his support for terrorism and in the State· Department Special Report know of Libyan money in the millions of immediate wake of the Rome and No . 138, January 1986. dollars going to Abu Nidal, of Libya Vienna airport attacks. These reasons In summary, the most significant providing and buying arms for Abu include: concern for the safety of their Palestinian groups Libya has backed are Nidal, of Abu Nidal and his top lieu­ citizens in Libya or elsewhere if they Abu Nidal; the Popular Front for the tenants living in Libya, of his killers were to join the United States in strong Liberation of Palestine-General Com­ being trained there, and of travel docu­ action; skepticism over the effectiveness mand, the PFLP; and dissidents. ments and other facilitative assistance of economic sanctions; and other foreign Abu Nidal's beneficiaries in Europe being provided by Libya for their travel policy interests. include-in addition to the IRA-the to commit terrorist attacks abroad. In the Middle East, the initial reac­ FP-25, in Portugal and anti-Turkish Some of this evidence, such as the use tion of the Islamic countries to Presi­ Armenian terrorist groups. Asian of confiscated Tunisian passports by ter­ dent Reagan's decision to oppose Libyan groups, aside from those in the Philip­ rorists in the December 27 attack, is in terrorism shows just how dangerous the pines, include Pakistan's Al-Zulfiqar the public domain. Some of it is highly situation has become. A number of group, the Kanak Socialist National classified intelligence, and to reveal it moderate governments, among them Liberation Front in New Caledonia, and would help the terrorists beat our those who have been directly threatened Muslim insurgents in Thailand. In Cen­ defenses. But there is no question about by Libyan subversion and terrorism, tral and South America, Qadhafi has the Libyan-Abu Nidal connection or consented to a resolution by the Organi­ provided training and funding to a va­ what Qadhafi hoped to accomplish. By zation of the Islamic Conference sup­ riety of groups, including Colombia's this new terrorist resource, the fanatical porting that country and opposing the M-19, Chile's Movement of the Revolu­ Libyan leader believed his limitless am­ United States. This was more than an tionary Left and Manuel Rodrigues bitions and wild dreams could become expression of solidarity toward a fellow Patriotic Front, and insurgent groups in true-that the West as well as the Arab Islamic country which the media had Guatemala and El Salvador. More Liby­ world would be so intimidated that they depicted as about to be attacked militar­ ans arrived just last week in Nicaragua, would accept him as a major power on ily by the United States, although such via Cuba, to assist the regime there and the regional and world scene. a sentiment has strong popular appeal. other terrorisUrevolutionary groups It also reflected the concern of a num­ such as those just mentioned. U.S. Actions Against Libya ber of governments at the potential po­ Closer to home, Qadhafi has tried to litical power exercised upon parts of undermine the governments in neighbor­ That is the basic reason for the strong their population by Qadhafi's brand of ing Egypt, , and Sudan and has reaction by the Reagan Administration militant political ultranationalism­ invaded Chad. In Egypt, -Abu Nidal to the massacres at Rome and Vienna. particularly at a time when moderate operatives were caught last year trying Against the background of the un­ Arab regimes are also worried by the to blow up the U.S. Embassy in Cairo. mistakable imprint of Colonel Qadhafi potent religious-military-political power Indeed, Qadhafi's own terrorist activ­ and the Abu Nidal organization on a of Iran and agitation of the Palestinian ities have been more wishful thinking dozen attacks around the rim of the people, present in substantial numbers and big talk, or largely aimed at Libyan Mediterranean in the last half of 1985, in many Middle East countries ... . dissidents, until he joined forces with and the previous unwillingness of most Our overall policy is to seek to ob­ Abu Nidal toward the middle of last of those governments to join in collec­ tain long-term cooperation of the world year. Until that time, the group in re­ tive measures to stop the threat, the community against the use of terrorism cent years had been the beneficiary of airport attacks were seen as a clear call for political ends, no matter how worthy almost exclusive Syrian support. The for action and leadership by the United one may consider those ends. We have States. also concluded that while increased

7 security-an essentially defensive negative, even if Qadhafi had an initial takes place abroad where our power is action-is important and must be ener­ upsurge in public support. Despite their fettered; the enemy is determined and getically pursued, there is also a need rhetoric, the other Arab governments clever and ready to die. Qadhafi is only for more offensive, active measures if do not appear willing to bail out Libya's a part of the problem, and we are not the spread of terrorism is to be stopped. badly faltering economy, nor have they losing sight of that. As Secretary Shultz taken any substantive economic or polit­ and others have noted, terrorism is a European Efforts Against Terrorism ical actions against the United States. form of a low-intensity warfare. Never­ The Soviet Union has been stridently theless, we have achieved the national Although it is, of course, too soon to tell supportive in its rhetoric and has con­ consensus called for 2 years ago by what the ultimate effect will be on tinued its very dangerous policy of sup­ Secretary Shultz; we have completed a Libya, there is no question in my mind plying weaponry to a regime known for thorough review of security, chaired by but that the other governments in its erratic, reckless behavior. (We all Adm. Bobby Inman, and are implement­ Europe and elsewhere share a growing recall the strong evidence that Soviet­ ing the recommendations; the Vice recognition of the extreme gravity of supplied mines were used by Libyan President's task force on more active the threat and the need to take action. ships in the Red Sea in 1984. Soviet­ counterterrorist measures has finished Although some of them were reluctant supplied aircraft additionally were u~ed its work and implementation is begin­ to announce what they had done, there in bombings in Sudan in 1984 and this ning; and other governments seem to be was a positive response, in public or pri­ week in Chad.) Yet there are also signs awakening. I would like to assure you vate, by almost all the governments of unease and caution by the Soviets, that, with your support and continued which Deputy Secretary Whitehead and and they appear no more eager to bail help, we will continue to be in this I visited last month_ Following the visit, out Libya economically than the Arab effort for the duration. the EC [European Communities] foreign governments. (It is our guess that, if We welcome the support and inter­ ministers discussed terrorism at length spot oil prices stay under $20 per bar­ est of this commmittee and its members, and issued a positive statement. They rel, by the end of this year Libya's an­ for the effort to counter terrorism can announced a decision not to export arms nual revenues will be in the range of only succeed if it is a partnership_ Previ­ or other military equipment to countries $6-7 billion, whereas 5 years ago they ous legislation passed by this committee which support terrorism, a pledge not to exceeded $20 billion dollars, and 2 years is being used vigorously. such as the undercut steps other states have taken ago they were over $10 billion.) rewards legislation. We support new to deal with terrorism, and the forma­ ... There are signs that these ef­ legislation which is being considered to tion of a permanent working group to forts by the United States and the extend and strengthen the protection make future recommendations. Europeans are getting to Qadhafi. This afforded U.S. citizens abroad from Some individual governments have is indicated by his frantic efforts to terrorist acts. We would like to work gone further. For example, Italy has im­ reach out to both the international with you on other measures-including posed a visa requirement for all visitors media and several European and Middle passage of the revised l".S.-C.K. extra­ from North Africa, in view of the grow­ East governments to try to persuade dition treaty, which \\ill send a strong ing number of terrorist incidents involv­ people that he isn't really such a bad signal to other governments in the ing falsified North African travel guy at the same time that he strikes important area of extraditing terrorists documents. Italy also has stopped all militaristic poses and threatens the U.S. rather than allo'hing them to escape arms supply-including deliveries on ex­ Sixth Fleet. I don't think anyone is proper punishment. isting contracts-despite the financial really being fooled-unless they want to losses. Italy also is reviewing its overall be. relationship with Libya and has intensi­ Should Qadhafi not heed the voices AMBASSADOR BORG fied still further the very good work be­ of reality and again unleash his agents FEBRUARY 19, 1986 ing done by its police and magistrates to to commit terrorist acts, or should other fight domestic terrorism. Canada had al­ governments not understand the Excerpts from a statement before the ready reduced the level of diplomatic broader message warning against state Subcommittees on Anns Control, Inter­ ties with Libya, as had the United King­ support of terrorism, President Reagan national Security and Science and on dom. Canada also further agreed to stop has made it clear to all that he is pre­ International Operations of the House shipping sophisticated oilfield equipment pared to continue exercising the respon­ Foreign Affairs Committee, Washing­ to Libya, despite the loss of sales, and sible leadership role of the United ton, D.C. to discourage any Canadian business States. Consideration of the careful use activity there. All governments with of force in such circumstances has not I am very pleased to have this oppor­ which we spoke said they would con­ been ruled out, in accordance with our tunity to review \\ith you today our sider additional measures, and we in­ right of self-defense. progress in improving security for inter­ tend to continue our consultations with national air travelers and to give you an them on how best to confront the com­ overview of recent actions undertaken The Need for mon threat posed by Libyan-sponsored to combat terrorism .... terrorism. Congressional Support Those who say that this type of non­ The antiterrorism effort is a long and military action will not work against complicated one, to be pursued by a U.S. Cooperative Efforts Libya should suspend their judgment combination of unilateral, bilateral, and To Combat Terrorism until our efforts have had time to be multilateral measures. However, there Bilateral Efforts. Our bilateral efforts tested, for it is a long-term effort rather are no magic weapons-most terrorism to combat terrorism are becoming more than a one-shot affair. The private sig­ complex, with better exchanges of intel­ nals reaching the Libyan leadership ligence, more frequent high-level com- from Europe and elsewhere are mostly

8 munications, cooperative efforts in coun­ tion, introduced at the IMO's 14th The above cited actions make clear terterrorism technology, and better assembly in November 1985, to instruct that progress is possible and that the judicial and military cooperation. More the Maritime Safety Committee (MSC) system recently has been responding countries are establishing centralized to develop measures for the prevention favorably and with a sense of urgency counterterrorism offices able to coor­ of terrorist. attacks against passengers to our calls, and those of others for dinate the various parts of their and crews on board ships. A detailed action. ' U.S. proposal was favorably received by bureaucracy, both on a routine opera­ Multilateral Efforts. In contrast to MSC at its meeting which ended tional basis and during a terrorist inci­ the these impressive developments in our dent. Our bilateral cooperation to com­ February 5, and we expect adoption of a bilateral relationships and with inter­ bat terrorism is already good and final text at the next MSC meeting in national organizations, multilateral steadily improving. September. .. . Although the mandates cooperation to combat terrorism among Counterterrorism cooperation is on of ICAO and IMO are significantly like-minded nations has gone more different, we are grateful to ICAO for the agenda for every high-level visit to slowly, but there has been some prog­ IMO its years of the United States; other countries can making available to ress. For example, European states, experience with security measures have no doubt as to the commitment of so partly as a result of our pressing them that IMO could accomplish in a matter the United States to combat terrorism to do more to stop Qadhafi's support for of months in the maritime area what by every means. Ambassador Oakley terrorism, have organized a high-level took years to accomplish h.as led numerous interagency delega­ in international EC committee to coordinate actions on civil aviation affairs. tions to many nations for specific discus­ the problem. We welcome this effort by sions of counterterrorism cooperation. European states to address collectively We have found the Anti-Terrorism the problem of international terrorism Assistance Program to be a very effec­ and we are seeking ways to cooperate' ~ive policy tool for stimulating general . . . the time ha.s come for the institutionally or informally, with this ' mterest in other countries in general nations that truly seek an end to group. cooperation and in stimulating support terrorism to join together, in The Council of Europe's committee for specific U.S. policy concerns. It has on combating terrorism has proposed in helped us strengthen our policy dialogue whatever forums, to take the necessary steps. recent days to expand the European with such states as Turkey Greece Convention on the Suppression of Egypt, the gulf states, Isr;el, and ' Terrorism to additional states. We Colombia. To date, 32 countries have Secretary Shultz June 24, 1984 welcome the initiative and look forward participated in some aspect of the ATA to contacts with the Council of Europe Program, with a total of over 1,800 to explore how we might move forward participants. The Office of Counter­ with a broader convention. Terrorism and the Bureau of Diplomatic As a separate matter, we have for Cooperation in the Summit Seven1 Security have cooperated closely in the context has been, frankly, less reward­ administration of this program. There is some time been engaged in an effort to encourage more states to become ing during the past year. We have no doubt that there is a higher level of sought as a first step with this group awareness in many countries of the parties to the Tokyo, Hague, and Mon­ treal conventions, which relate to air­ which represents some of our closest ' dangers of international terrorism and a allies, to revitalize the Bonn declaration2 greater willingness to take effective cr3:ft safety, hijacking, and sabotage. This effort has been going on for several of 1~78 an~ obtain agreement to cooper­ actions against it because of the ATA ate m specific other areas outlined in Program . .. . years and has achieved such a degree of success that these conventions are now previous summit statements at Venice Efforts in International Organiza­ among the most widely accepted inter­ Ottawa, and London, but the political ' tions. The United States has had suc­ nationally. The Tokyo convention has climate has not permitted the sort of cess in international organizations in 121 parties; the Hague, 126; and Mon­ multilateral cooperation which we obtaining more effective agreements and treal, 127. believe is essential. ... stronger resolutions against inter­ These activities by the United national terrorism. The UN Security States in international organizations Conclusion Council has issued several statements represent a good deal of recent success. condemning international terrorism and U.S. policy in multilateral organizations These examples illustrate that some unanimously approved a U.S. resolution for combating terrorism is directed progress has been achieved but also in December against hostage-taking. toward: illustrate the broader problems in ob­ Also in December, the UN General taining joint international actions Assembly adopted a strong resolution • Increasing public understanding against terrorism along the lines fore­ which unequivocally condemned as crim­ and awareness of the nature of ter­ seen in Title V of the 1985 Foreign inal "all acts, methods and practices of rorism; Assistance Act. We are keeping our terrorism wherever and by whomever • Encouraging the development of objectives firmly in mind and pressing committed . . . . " The resolution specifi­ internationally accepted standards of them at every opportunity where ac­ behavior and responsibility for indi­ ca~ly called on all states to take appro­ ceptance by other countries provides a priate measures as recommended by the vidual states in preventing, deterring, reasonable prospect for success .... International Civil Aviation Organization and punishing terrorism; and (ICAO) and as set forth in relevant • Encouraging effective inter­ national cooperation to combat terror­ 1Canada, Federal Republic of Germany, international conventions to prevent Fr~nce, Italy, Japan, United Kingdom, and terrorist attacks. ism, including adherence to existing international counterterrorism conven­ Umted States. The International Maritime Organi­ 2The 1978 Bonn declaration on civil avia­ zation (IMO) acted upon a U.S. resolu- tions. tion security.

9 AMBASSADOR OAKLEY In 1985, there were 177 incidents groups exploited by governments for FEBRUARY 13, 1986 which involved American individuals or political ends make state-supported facilities overseas, compared with 131 terrorist groups more deadly. They have Excerpts from an address before the for all of 1984. For both years this was the means and desire to shift tactics Conference on Terrorism, Tourism and slightly less than one-fifth of total inci­ toward bombing and armed attacks Traveler Security, Washington, D.C. dents and less than 10% of total casual· which make maximum political impact. ties. Twenty-three Americans were The state support enables them to aper· ... Every day, it seems we are con· killed and 139 injured by terrorists ate without worrying about financing or fronted with a new terrorist incident. abroad in 1985 (compared to 20,000 arms. But let's take a longer view tonight killed in traffic accidents in this coun· Fifth, the Middle East has become and look at terrorist trends and how try). In recent events, the TWA and the primary source of international the U.S. Government is combating Egypt Air hijackings, the Achille terrorism (378 incidents in 1985), in past terrorism. Lauro, and, to some extent, at the years accounting for about 35% of the Rome airport attack, Americans were incidents. In 1985 this rose to 45%. singled out as targets. Middle East terrorist activities are Trends and Developments Why does it appear that the United taking place not only in the region but In looking at trends and developments, States is being singled out? also in Europe. we note: • Because of our position as the There are two main categories of First, terrorism is likely to be a world's number one power and the per­ Middle Eastern terrorists: prominent factor on the international ception abroad that our policies and • Fanatical Palestinians, most of political landscape for the rest of this actions somehow are responsible for sit· whom have split off from-and often act century. uations, policies, and actions in other in direct opposition to-the mainline countries. This makes it popular for • There were around 500 inter­ PLO led by Arafat. They often have the national terrorist incidents per year in terrorists to attack U.S. targets and for direct support of Libya, Syria, or Iran; the media to play up attacks on the late 1970s and early 1980s, 600 incidents and United States more than others. And, in 1984, and 812 for 1985-a 60% • Shia zealots from various Arab naturally, the U.S. media focused on countries, especially Lebanon, who are increase in the last 2 years. attacks affecting Americans-the • Continued political unrest, dis­ inspired and trained, often armed and "hometown angle" spread over into the financed, and, to varying degrees, putes between nations, and socioeco­ national networks. nomic problems create conditions of guided by Iran. • Because the United States is so frustration and hatred which can easily present abroad: military, diplomats, The targets of Middle East terror· be transferred into terrorism. ism fall principally into four groups: • Mass global communications foreign assistance personnel, business· men, and tourists. There are more than Israel; Western governments and citi· assure instantaneous publicity for a million Americans overseas for one zens, particularly the United States; terrorist acts. reason or another. moderate Arab governments and offi. • Frustrated splinter groups increas­ cials, including the mainline PLO as well ingly recognize they can make their • Because Americans are on the move more than other nationalities; as Jordan, Egypt, Kuwait, and Saudi mark more easily through acts of via· Americans make up the majority of Arabia; and critics of radical regimes, lence than through normal political particularly Libyans. opposition. cruise ship passengers and a substantial plurality of airline passengers. Other regions where terrorism is at • Travel has become much easier a high level are Western Europe (208 between different countries, and border In terms of combating terrorism, incidents), where there are a number of controls have been reduced, particularly this means that the U.S. Government indigenous groups motivated by ideologi­ in Europe. and American citizens overseas are very cal or ethnic/separatist beliefs, and • A worldwide system of competi· dependent upon the protection and coop· Latin America (132 incidents), where the tive arms sales makes weapons available eration of other governments. roots from which terrorists spring are a more easily to terrorist groups. Third, terrorist attacks are increas· combination of ideology, politics, eco­ • Wea pons of mass destruction as ingly violent. Trends over recent years nomic and social grievances, and­ well as increasingly lethal conventional have shown a steady increase in the recently-narcoterrorism. Indigenous armaments have made regular warfare number of dead and wounded-an even European terrorism decreased some­ potentially too costly, particularly more rapid increase than in the number what last year, thanks to outraged pub­ against stronger adversaries, causing of incidents. lic opinion and better police work in some governments to see terrorism as a Fourth, state sponsorship has countries such as Italy, the Federal cheap way to strike a blow at their become an increasingly dominant factor Republic of Germany, the United King· enemies. in global terrorism. There has been an dam, and Belgium. In Latin America, unmistakable rise in the past few years, Second, we tend to think of terror· the trend is up, and so are attacks ism as an American problem, but it is with Iran, Libya, Syria, Cuba, and Nica­ against the United States. ragua as the most active, determined, an international problem. Of a total of As you in the industry know better systematic supporters of terrorist some 800 international terrorists inci· than we in government, the upsurge of dents in 1985, none occurred in the groups. Direct government assistance in Middle East terrorism is having a nega· arms and explosives, communications, United States, where our security and tive effect on tourism, and especially intelligence agencies have full authority travel documents, money, and training upon tourism emanating from the and maximum capability to act. combined with fanatic individuals or United States. Three major incidents

10 1 Attacks on U.S. citizens International Terrorist Attacks, 1985 and property • Other Attacks 2 Number of Attacks 0 50 100 150 200 250 .· 300 " 350 500

"fype of Target

Business

Diplomatic .. , Military

Other Government

Other

. "fype of Event

Bombing

Armed Attack

Arson

Kidnaping

Skyjacking

Barricade

Other

By Region

' ... ·... Middle East

Europe

Latin America

Asia-Pacific

Africa

North America

Based on preliminary 1985 figures, which may be subject to review and revision . 2 Number may be higher than total number of attacks because of capability of recording multiple victims and/or installations attacked.

11 seem to have had the greatest impact, Recognizing the problems-and Maritime security is a new subject. due to a combination of the acts them­ they're not easy ones-let's look at some We did not anticipate passenger hijack­ selves and the wide publicity they were of the actions we have been taking that ings because there had not been any in given: have an effect on tourism. more than 20 years-and never previ­ ously in the Middle East. Some lines es­ • The hijacking of TWA Flight 847 tablished their own securit\· measures, from Athens; Actions Affecting Tourism but these added to the cost of the tours • The hijacking of the Italian cruise Improved civil aviation security has and were not regarded uni\·ersally as ship Achille Lauro; and been one of the highest priorities. It is necessary. The tragic Achille Lauro in­ • The massacres at Vienna and an area where we can see some results. cident jolted the l '.S. and other goYern­ Rome airports. We had actually anticipated the danger ments into a much more active policy of Although we have no precise of an increase in aircraft hijacking and safety standards for ships and ports, figures, the best guess of the State airport attacks stemming from Mid-East focusing upon a reinforced role for IMO Department is that the European and terrorism. Over a year ago, the State and national actions. A special inter­ Middle Eastern countries of the Medi­ Department and the FAA began a agency working group has been set up terranean rim lost upwards of $1 billion major effort with friendly governments within the U.S. GoYernment \\ith the in anticipated revenue from tourism last and with the airline industry and the Coast Guard, the Departments of Trans­ year, and it will probably be worse this ICAO to draw attention to the threat portation and State, and other agencies year. This is a blow to the tourist indus­ and to propose measures to deal with to deal with this problem more effective­ try but an even greater blow to coun­ it.... ly. New international safety :Standards tries counting heavily upon revenue for Unfortunately, there was not enough which the United States proposed are their economies: Italy, Greece, Egypt, concern by most other governments being considered by the International Tunisia, and others. Even Amsterdam is until after the TWA 847 hijacking in Maritime Organization, which met in affected. June 1985, and the State Department January and should approve them later issued a travel advisory for Athens this year-a breakthrough for interna­ airport. At that time, behind the leader­ tional ship travel. Dealing with Terrorism ship of Transportation Secretary We recently have held informal What has been and is being done to deal Elizabeth Dole and her Canadian col­ meetings between representatives of the with international terrorism? There are league, the !CAO Council expeditiously U.S. travel industry and the Depart­ several real problems in dealing with adopted a number of additional mini­ ments of State and Commerce to de­ terrorist incidents which occur outside mum security measures; Greece im­ velop a more effective common approach the United States. plemented rapidly the improvements for to the terrorism problem. We need to Athens airport which had been in limbo work more closely on exchanging our as­ First, let us recall that the U.S. since agreed upon with a U.S. team in sessment of the terrorism situation with Government has only limited ability to February; and several other govern­ you for information on the impact of influence the situation when it occurs ments took rapid advantage of offers by abroad, particularly since some govern­ terrorism on tourism. Using the clout the State Department and FAA for of the loss of tourism dollars, we have ments tend to shy away from coopera­ technical assistance and training in civil an added weapon to use \\ith other tion with us. Some erroneously believe aviation security. governments. that because the U.S. Government is a Today, the FAA is sending officials principal target of terrorists, working to airports around the world in order to with us could bring more trouble; or Improving U.S. Ability measure their safety. If there are they have nationalistic reasons for keep­ problems and they are not corrected, a To Act Against Terrorism ing a distance. travel advisory will be issued-as it was Second, most European states have The Administration has been hard at for Athens airport. Better intelligence closer economic links than we do with work unilaterally to imprO\·e its ability has also enabled the FAA and other to act against international terrorism. the Middle East and, particularly, with U.S. Government agencies to issue more the oil-rich states that are prime spon­ The antiterrorism legislation passed by frequent, timely threat alerts for sors of terrorism-notably Libya and Congress in late 1984 has put into prac­ airlines and airport authorities abroad. Iran. tice, with arrest warrants and extradi­ Hijackings declined sharply in the se­ Third, some governments believe tion requests issued and rewards posted cond half of 1985. However, these tight­ that they can have a sort of gentleman's for the hijackers and killers of TWA er security measures did not apply to Flight 847 and the Achille Lauro cruise understanding with Middle East ter­ public access areas, where both interna­ rorists and those states who support ship. The Department of Justice and the tional and U.S. airports are vulnerable. them: in exchange for a pro-Arab for­ FBI have, thus, become more directly Most airports were designed to facili­ involved in investigating and preparing eign policy and virtually free entr~ ' and tate, not inhibit, public access. Since passage for persons from Middle East to prosecute terrorist crimes against the attacks at Rome and Vienna, addi­ countries (even suspected terrorists), no Americans abroad. This also has the ef­ tional armed guards are in place at terrorist activities will take place on fect of emphasizing that terrorists are most major airports in Europe, and their territory. (Unfortunately for the not some kind of romantic "freedom vigilance is up. governments in question, terrorists are fighters" but are vicious criminals ...\d­ not gentlemen.) They also tend to be­ ditional legislation along these lines is lieve that it will "not happen here" and, pending, as is a new U.S.-U.K. extradi­ therefore, avoid the troublesome, expen­ tion treaty which would treat terrorists sive actions necessary to deter terrorist as criminals. attack.

12 There has been a significant increase in the slums of Beirut, the deserts of Unfortunately, these measures, in intelligence resources being applied to Libya, or the jungles of Central Ameri­ unilateral and international, have not the terrorist problem, and further im­ ca. The problem is an international one, been enough .. . . There has simply not provements have been made in our abili­ and effective responses require interna­ been enough action by other govern­ ty to respond militarily to a terrorist tional cooperation. ments to act against terrorists before attack should this situation arise. The As Secretary Shultz said in a they can strike or to arrest and punish successful interception of the Achille June 24, 1984, speech, terrorism is an them once a crime has been com­ Lauro hijackers is the most spectacular international problem that requires the mitted .... manifestation of both these improve­ concerted efforts of all free nations, and There is the beginning of an awaken­ ments, combining excellent intelligence ". . .the time has come for the nations ing in Europe. Although still somewhat with timely military action in a precise, that truly seek an end to terrorism to embarrassed politically by U.S. leader­ restrained way. Less publicized is the join together, in whatever forums, to ship, there was a positive response be­ fact that over 100 terrorist attacks take the necessary steps." hind the scenes by most of the nine planned against the United States Obtaining agreement on specific in­ governments which Deputy Secretary abroad were preempted in 1985 due to ternational steps is a difficult and long Whitehead and I visited last month. better intelligence or better security. process-going back to even before the Cessation of arms supply to Libya, in­ We have beefed up substantially the 1984 speech. Indeed, the efforts go back cluding existing contracts; an end to protection accorded U.S. Government to the terrorist outbreaks in the 1970s. government credits for exports; tighter officials stationed abroad, both military It has not been easy, for the reasons I controls on Libyan entry and movement; and civilian, and improved cooperation mentioned earlier and because there is a and a promise not to substitute for with private American business over­ strong sentiment of independence, if not departing American companies and seas, including the creation of an resentment, amongst these governments technicians-these have been agreed to Overseas Advisory Security Council vis-a-vis leadership from the United by almost all governments. Some have composed of State Department and States. gone further-notably Italy, which has private business representatives. Progress is being made, however. imposed a visa requirement for all visi­ The Diplomatic Security Bureau and Italy recently has been the most cooper­ tors from North Africa and is reviewing the Bureau of Consular Affairs of the ative European country, perhaps be­ its overall relationship with Libya. Col­ State Department have also increased cause of the jolt of the Achille Lauro lectively, the EC has decided to estab­ their programs for providing information hijacking, perhaps because its remarka­ lish a high-level committee to study the to travelers and prospective travelers, ble success in reducing domestic ter­ terrorist problem and make recommen­ as well as businessmen. When a call rorism convinced its government of the dations. We hope this will be a forum comes in on whether or not it is safe to need to act sooner rather than later. for vigorous action. travel to a particular country, they can The United Kingdom and West Germa­ One of the motivating factors behind provide the latest evaluation based upon ny also deserve special recognition for this sudden activity in Western Europe the view of our diplomatic posts abroad the vigorous efforts they have been has probably been the loss of tourist and the intelligence community here in making to combat terrorism in their revenues, particularly from the United Washington. As a general rule, the countries and to promote greater multi­ States. Europeans who in the past have State Department and its posts abroad lateral cooperation against the common been reluctant to take vigorous antiter­ do not discourage foreign travel because threat. rorist actions because of commercial in­ there are terrorist incidents. If there Other governments have been less terest are beginning to understand are problems in a particular country vigorous and less cooperative, adhering there is another side of the financial which warrant attention but not, in our to a practice of accommodation and ledger. Terrorism is costing them judgement, cancellation of the trip, we outdated policies of liberal refuge and hundreds of millions of dollars in lost point this out. If the problems are very asylum for those who claim political tourism, increased security costs, and serious-as in Lebanon or Libya or, for motivation for what are really heinous apprehensive investors. Another is the a time last year, at Athens airport-we criminal acts. The U.S. Government dis­ pressure of public opinion, which in will issue a public travel advisory. agrees strongly with such an approach most European countries is demanding and has made its views known. firmer action by governments and is On balance, discreet but effective The Need for angry at what seems to be an inade­ bilateral cooperation between the Unit­ International Cooperation quate response. In both these areas, ed States and most of its allies has im­ groups such as those represented here The measures which the United States proved substantially over the past year, tonight can use your potential pressure can take unilaterally to combat ter­ just as we have been able to focus to good effect, making clear through rorism are limited by a variety of fac­ greater world attention on the issue by your own channels which governments tors. We cannot, for example, arbitrarily pushing hard for resolutions condemning you believe are taking seriously their land assault troops at the airport of a terrorism in the United Nations. The responsibilities to fight terrorism and friendly country to storm a hijacked General Assembly and Security Council protect all persons in their countries. plane without working out arrangements have both approved resolutions in re­ Combined with the efforts of the U.S. with the host country. Nor can we real­ cent months. Effective multilateral ac­ Government, this can have an important ly track suggested terrorists ourselves tion on specific problems or countries, positive impact. however, is still not in sight.

13 Chronology of Major American-related Terrorist Incidents, 1985

December 27 International Telephone and Telegraph September 9 Rome, Italy; Vienna, Austria: Ter­ (ITT), wounding two Chilean security Madrid, Spain: A car bomb ex­ rorists simultaneously attacked pas­ guards. Shortly afterward, an explosion ploded in central Madrid during a morn­ sengers at airports in Rome and Vienna damaged the offices of the United Trad­ ing rush hour and wounded 16 civil with grenades and automatic weapons ing Company, a Chilean-Kuwaiti fruit guards in a van and two passersby. One fire. Five Americans were among those exporter, and severely injured two em­ of the wounded, U.S. businessman killed in attacks on El Al and TWA pas­ ployees. The third bomb went off at the Eugene Ken Brown of Johnson and sengers in Rome. Two El Al passengers offices of Freeport Chilean Exploration, Johnson, died 2 days later. Brown was were killed in Vienna. Airport guards a New Orleans-based mining company hit in the chest and neck by shrapnel killed three terrorists and captured and subsidiary of Freeport McMoran, while jogging in the area. ETA, a another in Rome. In Vienna, one ter­ Inc. of New York. Damage was Basque separatist group, claimed rorist was killed and two were captured. extensive. responsibility in telephone calls. The Abu Nida! group claimed credit for the attacks. October 23 September 3 Concepcion, Chile: A bomb ex­ Cali, Colombia: A large bomb ex­ November 24 ploded at the U.S. -Chilean Binational ploded in the library of the U.S.­ Frankfurt, West Germany: A car Center, causing extensive damage and Colombian Binational Center (BNC) and bomb exploded at a U.S. military post one injury. The explosive detonated out­ three bombs were placed in front of the exchange (PX) injuring 36, including 18 side the center's front door where it Coca-Cola bottling plant. Hours earlier, U.S. military personnel and 15 U.S. seriously wounded a young girl who the U.S. Embassy had passed on to the civilians. The bomb was contained in a happened to be passing by. The Manuel American community advance warning silver BMW. No group claimed credit. Rodriguez Patriotic Front claimed that terrorist activity would be directed responsibility for the attack through an at U.S. interests in Colombia that even­ November 23 anonymous telephone call to a radio ing. Two injuries and considerable Malta: An Egyptair flight carrying station. damage were reported from the BNC 96 people, including three Americans, explosion. Both the M-19 and the was hijacked en route from Athens to October 7 Ricardo Franco Front claimed responsi­ Cairo and diverted to Malta by three , Egypt: Four gunmen bility for the bombings. Arabic-speaking gunmen. When de­ seized the Italian cruise ship Achille mands for refueling were not met, two Lauro off Port Said, Egypt, and took August 8 Israeli women and three Americans some 400 people on board hostage. Frankfurt, West Germany: A car were shot in the head with a small Among the hostages, representing many bomb exploded in a parking lot at the caliber weapon. One Israeli and one different nationalities, were 12 Ameri­ U.S. Rhein-Main Air Force Base, killing American died. An Egyptian commando cans. The hijackers demanded the one U.S. airman and the wife of unit stormed the plane using explosives release of 50 Palestinians held in Israel. another. The 20 injured included 18 U.S. to enter a cargo hold. A fire and gun­ The hijackers killed Leon Klinghoffer, citizens. The bomb vehicle was a metal­ battle ensued. In all, 59 passengers an elderly American confined to a lic green Volkswagen \\ith forged U.S. were killed. Three groups claimed wheelchair, and threw his body over­ Armed Forces license plates. The Red responsibility: Egypt's Revolution, the board. The ship returned to Egypt Army Faction (RAF) and Action Directe Egyptian Liberation Organization, and where the hijackers surrendered to PLO jointly claimed credit for the attack the Arab Revolutionary Brigades (a.k.a. and Egyptian officials. Egypt released under the name of the "Commando the Abu Nida! group). the hijackers. The U.S. Navy inter­ George Jackson," an American member cepted the hijackers' plane and forced it of the Black Panthers who was killed November 6 down in Italy where they were taken attempting to escape from a California San Juan, Puerto Rico: Two into custody. prison in 1971. unidentified assailants on a motorcycle shot and wounded Maj. Michael Snyder, September 16 August 7 a U.S. Army recruiting·officer, as he Rome, Italy: Two Soviet-made Fl Wiesbaden, West Germany: A U.S. was riding a moped to his office in San grenades were thrown into the Cafe de serviceman, Edward Pimental, was shot, Juan. A passerby was also wounded. Paris, a popular tourist spot located 100 killed, and robbed of his military I.D. The Organization of Volunteers for the yards from the U.S. Embassy. One card after leaving a nightclub in the Puerto Rican Revolution claimed credit. grenade exploded and injured 40 people, company of a man and a woman just be­ among them several Britons and Ameri­ fore midnight. Police speculated that the October 28 cans. The Revolutionary Organization of stolen I.D. card might have been used Santiago, Chile: Four people were Socialist Muslims (a.k.a. the Abu Nida! by the Red Army Faction to gain entry wounded as bombs exploded at the group) claimed credit. Police arrested a to the U.S. Air Force base at Rhein­ offices of two U.S. companies and a Lebanese-born Palestinian. Main, where a car bomb exploded the Chilean-Arab exporting firm. The first day after the murder. On August 13, a bomb exploded at the headquarters of copy of an RAF communique and the I.D. card were sent to a news agency.

14 July 22 tionary Organization of Socialist May 15 Copenhagen, Denmark: Two bomb Muslims (a.k.a. the Abu Nidal group) Lima, Peru: Simultaneous bombings blasts wrecked the offices of Northwest claimed credit. occurred at a number of targets in the Orient and damaged a Jewish synagogue city, including the residence of the U.S. and old people's home. At least 14 peo­ June 23 Ambassador, where an explosive device, ple were injured, but no deaths were Air India Flight 182, flying from which was thrown over a wall, deto­ reported. One bomb was thrown Toronto and Montreal to India, crashed nated near the swimming pool. The through the window of the airline office; at sea off southwest Ireland, probably blast broke windows in the residence, it injured 10 people inside and one pas­ as a result of a bomb blast. All 329 pas­ which was occupied by the Ambassador serby. The other bomb exploded be· sengers, including four Americans, were at the time, but there were no casual­ tween the synagogue and the old killed. A caller to ties. Police blamed Sendero Luminoso people's home, injuring three or four claimed credit on behalf of a Sikh group. for the attacks, which came on the eve people. An anonymous caller in Beirut The crash appeared to be related to of the fifth anniversary of their war claimed credit for the Islamic Jihad, say­ another incident the same day at with the Peruvian Government. ing the bombings were in retaliation for Tokyo's Narita Airport where a bag be­ an Israeli raid on the southern Lebanon ing transferred from a Canadian airline April 12 town of Kabrikha the day before. to an Air India flight exploded and Madrid, Spain: A bomb exploded in killed two airport workers. the El Descanso restaurant, which is July 19 frequented by U.S. military personnel Santiago, Chile: A powerful car June 19 from a nearby airbase. Eighteen bomb exploded in front of the U.S. con­ San Salvador, El Salvador: Gunmen Spaniards were killed, and 15 Americans sulate. A Chilean passerby was killed, shot and killed 13 people, including four were wounded. The blast was caused by and four other Chileans were injured. marine security guards and two U.S. a 12-pound homemade bomb. Several Two of the wounded were police guards businessmen, at an outdoor cafe. The groups claimed responsibility, including posted at the consulate. Damage to the slain marines were identified as Cpl. the Islamic Jihad organization. consulate consisted of broken windows. Patrick Kwiatkowski, Sgt. Bobby Dick­ The Manuel Rodriguez Patriotic Front son, Cpl. Gregory Webber, and Sgt. April 9 claimed credit. Thomas Handwork. George Viney and Santiago, Chile: Two explosive Robert Alvidrez, two businessmen from devices were almost simultaneously July 14 Wang Laboratories, were also killed. detonated in a small pedestrian shop­ Karachi, Pakistan: A bomb ex­ Witnesses said a pickup truck stopped ping arcade where six banks, a few ploded near the main entrance to the at the curb, and 6-10 men dressed in restaurants, and several businesses Pan Am office. A man was seen placing military-type uniforms and armed with were located. The blasts caused only a bag on the stairs of the office, but a automatic weapons jumped out and fired minor damages but wounded eight pa­ passerby moved the bag away before it at cafe patrons. The gunmen seemed to trons of a restaurant and passersby. The exploded. The blast injured the passer· single out the marines, who were in Chase Manhattan Bank and the First by and two others. No group claimed civilian dress. The Revolutionary Party National City Bank have branch offices credit. On August 17, 1985, a Pakistani of Central American Workers claimed at this location. On this same night, five male who was described as strongly credit. other bombs exploded in four other anti-American was arrested. He is be­ cities in Chile. The targets include the lieved to have acted alone. June 13 U.S. Bank Moran Finance in La Serna, Beirut, Lebanon: TWA Flight 847 a supermarket, a tourist office, and a July 1 from Athens to Beirut was hijacked telephone booth. Andori, Colombia: Attackers, be­ with 153 passengers on board. Two lieved to be with the leftist National Lebanese hijackers took the plane from February 21 Liberation Army, shot and severely Beirut to Algiers, back to Beirut, to Barranquilla, Colombia: A bomb wounded Douglas Brannen, a former Algiers again, and finally back to Beirut. exploded outside the Binational Center, Florida State senator, near Brannen's They demanded the release of 700 killing the night watchman and causing gold mine north of Bogota. Lebanese Shiites held in Israef. During extensive damage to the administrative the second stop in Beirut, the hijackers Madrid, Spain: Terrorists attacked offices. The bomb apparently was placed killed passenger Robert Stethem, a U.S. against a side wall of the center, just a building shared by TWA and British Navy diver, and a number of Americans Airways. A man ran into the British minutes before the explosion, by two were taken off the plane when about 12 men on a white motorcycle. The explo­ Airways ticket office below the TWA Lebanese Amal members boarded. Pas­ office and threw a box onto the counter. sive, believed to have been dynamite in sengers were released until 39 American a metal container, blew a large hole in The box exploded and gutted the office. men remained. All but the three crew The TWA office was also damaged. One the exterior wall adjacent to the office members were taken from the plane on of the center's director. The watchman Spanish woman was killed, and at least June 17 and held by Amal and Hizballah 28 people were wounded, among them was some distance from the blast and for 13 days until Syria obtained their was killed by shrapnel. The explosion two American tourists. "The Organiza­ release. Beirut Radio has identified the tion of the Oppressed" and the Revolu- also broke windows in the surrounding two original hijackers and has an­ neighborhood. nounced that they will be prosecuted.

~u . s . GOVER NMENT PRI!'lTING CFi'ICE : 19:>6 - i.91 . 7e; : 2009u 15 February 7 ing in Mexico, was abducted by four in protest of U.S. support for Turkey Medellin, Colombia: Terrorists gunmen just after leaving the U.S. con­ over the Cyprus issue. simultaneously bombed seven establish­ sulate. He was brutally killed, and his ments, most of which were U.S. firms. body was found a few weeks later. January 30 One policeman was killed, and another Three hours after Salazar's abduction, Guadalajara, Mexico: American was wounded. Explosions occurred at or Alfredo Zavala Avelar, a Mexican pilot John Walker and Cuban companion near the offices of Union Carbide, for the DEA, was also kidnaped and Alberto Radelat disappeared after being Xerox, IBM, GTE, Tradition Family and later killed. Among those arrested were seen at a Guadalajara restaurant fre­ Property, and a Hare Krishna temple. two major Mexican drug traffickers, quented by members of Mexico's drug Extensive damage was reported at some Rafael Caro Quintero and Ernesto underworld. On June 19, police found of the establishments. The Che Guevara Fonseca. their bodies in a well north of the city. Faction of the National Liberation The bodies were wrapped in tablecloths Army and the Ricardo Franco Front, a February 2 and carpeting and riddled with bullets. dissident group of the Revolutionary Glyfada, Greece: A bomb exploded Before the bodies were found, two drug Armed Forces of Colombia, claimed in a nightclub frequented by U.S. mili­ kingpins, Rafael Caro Quintero and Er­ responsibility for the multiple bombings. tary personnel. Sixty-nine Americans nesto Fonseca were arraigned based on Guadalajara, Mexico: Enrique were injured. A group called the "Na­ the testimony of a witness. Both have Camarena Salazar, a DEA agent work- tional Front" claimed the bombing was admitted killing Walker and Radelat, whom they may have mistaken for DEA agents. •

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